REBUILD KERALA

DEVELOPMENT PROGRAMME
A Resilient Recovery Policy Framework and Action Plan
for Shaping Kerala’s Resilient, Risk-Informed Development and Recovery
from 2018 Floods

Rebuild Kerala Initiative

 Preface
Between June 1 and 19 August 2018, our State of Kerala went through the worst ever floods in history since
1924. One sixth of the State’s population — about 5.4 million of us, Keralites — were affected. The floods and
the accompanying landslides were catastrophic in terms of loss of lives, livelihoods, property and infrastructure.
Even as the social and economic fabric of our people were torn apart, and the capabilities and capacities of our
institutions and communities were tested by the unprecedented scale of the disaster, Kerala rose up to the
challenge. At all levels, its citizens, communities and the government joined hands to mount what was a unique
people-driven and community-oriented endeavour to rescue, recover and rebuild Kerala. The disaster
demonstrated what was unique about our State — the strong foundations of its institutions, the resilience of its
communities and the fraternity of its diaspora.
Following the disaster, the Government of Kerala felt that the was a need to go beyond traditional approaches
to recovery and reconstruction to not only recover fully from the current disaster but also to prepare better for
future disasters. The Rebuild Kerala Initiative, led by the Chief Minister, Shri Pinarayi Vijayan, was thus born out
of the vision that floods should be taken as “a challenge and an opportunity to rebuild the State to ensure better
standards of living to all sections of the society”. The Rebuild Kerala Initiative presents a unique approach to
rebuilding the State. Through the Rebuild Kerala Development Programme, presented here, the Rebuild Kerala
Initiative attempts at a bold vision for a Nava Keralam that is more resilient, green, inclusive and vibrant.
Developed through a consultative and inclusive process over the last four months, the Rebuild Kerala
Development Programme outlines a roadmap for realizing a Nava Keralam. It encompasses key sectors of the
economy such as agriculture, animal husbandry, fisheries, forestry, land, livelihoods, roads and bridges,
transportation, urban services and infrastructure, water supply and sanitation, and water resources
management; it also addresses crosscutting priorities, among them climate change and disaster risk
management, environment, open data and public sector strengthening; and, finally, within the above, it covers
policies, institutions and investments that will build the foundations for a resilient, green, inclusive and vibrant
Nava Keralam.
The Rebuild Kerala Development Programme is not a panacea for everything that needs fixing in Kerala. For
example, it does not cover may critical sectors such as health, education or safety nets. It does not also address
every day issues — many of them critical — within the sectors it covers. It does not attempt to be all
encompassing or comprehensive. Nevertheless, it offers a paradigm shift in the approach to towards post-
disaster recovery, rebuilding and resilience. It also offers the design blueprint for a new development thinking
for our State, one that is embedded in the principles of sustainability, equity, inclusiveness and effectiveness.
This document presenting the Rebuild Kerala Initiative and the Rebuild Kerala Development Programme has
been prepared based on an extensive and inclusive process of public and expert consultations. It has been vetted
by Government departments and sector agencies and brought together by the RKI team with the support of our
international partners such as the World Bank and the United Nations. Nevertheless, I am sure, there are still
many areas that might need fixes, clarifications and further analyses. Incorporating and integrating that into the
rebuilding process will be an intrinsic part of the dynamic and iterative process of the Rebuild Kerala
Development Programme.
Fellow Keralites, friends and partners, I invite you to join us in the journey of rebuilding our State through the
Rebuild Kerala Development Programme.
Tom Jose
Chief Secretary to Government

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Contents
List of Tables ....................................................................................................................................... 5
List of Figures ...................................................................................................................................... 6
Acronym List ....................................................................................................................................... 8
Executive Summary...........................................................................................................................11
All about the 2018 Kerala Floods ...................................................................................... 19
1.1 How Vulnerable is Kerala to Disasters? ................................................................................19
1.2 What Happened during the 2018 Floods? ............................................................................22
1.3 How did the Government of Kerala Respond? .....................................................................25
1.4 What were the Impacts of the Flood? ..................................................................................25
How does the ‘Rebuild Kerala Development Programme’ Differ from the Standard Recovery
Approach? …………………………………………………………………………………………………………………………………….. 28
2.1 Rebuilding Post-flood and Protecting Our Future ................................................................28
2.2 Structural Constraints to Disaster Risk Reduction and Resilience ........................................28
2.3 A Paradigm Shift through Rebuild Kerala Development Programme ...................................30
2.4 Purpose of ‘Rebuild Kerala Initiative’....................................................................................30
2.5 A Unique Approach to Rebuilding.........................................................................................32
2.6 Key Principles of Resilience ...................................................................................................35
2.7 ‘Rebuild Kerala Initiative’ Core Guiding Principles................................................................36
2.8 Structure, Framework, and Process ......................................................................................38
2.9 Regions and Sectors Addressed ............................................................................................40
Cross-cutting Foundational Elements under RKDP ........................................................... 41
3.1 Disaster Risk Management and Resilience ...........................................................................41
3.2 Environment and Climate Change ........................................................................................69
3.3 Strengthening Institutional Efficiency and Resilience...........................................................80
3.4 Open Data .............................................................................................................................94
Key Sector Priorities Under RKDP ................................................................................... 102
4.1 Integrated Water Resource Management ..........................................................................102
4.2 Water Supply.......................................................................................................................126
4.3 Sanitation ............................................................................................................................140
4.4 Urban ..................................................................................................................................151
4.5 Roads and Bridges ...............................................................................................................163
4.6 Transportation ....................................................................................................................180
4.7 Forestry ...............................................................................................................................205
4.8 Agriculture ..........................................................................................................................219

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 4.9 Animal Husbandry and Dairy Development........................................................................236
4.10 Fisheries ..............................................................................................................................252
4.11 Livelihoods ..........................................................................................................................269
4.12 Sector: Land ........................................................................................................................286
RKDP Financing, Institutional and Implementation Arrangements ................................ 294
5.1 Financing Needs Summary..................................................................................................294
5.2 Kerala’s Macroeconomic Fundamentals .............................................................................296
5.3 State Government Macroeconomic Outlook and Debt Sustainability ...............................298
5.4 Financing of RKDP ...............................................................................................................299
5.5 Challenges of Financing RKDP .............................................................................................299
5.6 Analysis of RKDP Financing from a Public Finance Perspective ..........................................301
5.7 Partnership with Development Partners ............................................................................306
5.8 Need for a Dynamic and Flexible Financing Strategy..........................................................307
5.9 Determining the Quantum of Off-budgetary Financing .....................................................310
5.10 Execution of Off-budgetary RKDP Projects .........................................................................311
5.11 Raising of Off-budgetary Funds for RKDP ...........................................................................312
5.12 Mode of Deployment of Funds from the State Budget for RKDP .......................................314
5.13 Mode of Deployment of Funds Outside the State Budget for RKDP ..................................315
5.14 Project Identification and Selection ....................................................................................320
5.15 Institutional Support Framework ........................................................................................322
Monitoring and Evaluation of RKDP................................................................................ 324
6.1 Background and Rationale ..................................................................................................324
6.2 Monitoring and Evaluation Framework ..............................................................................324
6.3 Institutional Arrangements and Implementation ...............................................................325
6.4 Results Framework/Key Performance Indicators ...............................................................328
ANNEXURE …....................................................................................................................................... 336
Annex-1: DRAFT Detailed Investment Programme.........................................................................336
Annex-2: Government Order Operationalising the Rebuild Kerala Initiative .................................352
Annex-3: Institutional Setup for Rebuild Kerala Initiative ..............................................................354
Caveat ……………………………………………………………………………………………………………………………………….355

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List of Tables
Table 1: Kerala’s exposure to climate and geophysical hazards ................................................................. 19
Table 2: Area vulnerable to hazards ........................................................................................................... 21
Table 3: District wise rainfall during 1 June 2018 to 22 August 2018 ......................................................... 24
Table 4: Overview of Disaster Effects and Recovery Needs ....................................................................... 27
Table 5: Disaster Risk Management Actions and Results Framework ........................................................ 55
Table 6: Funding needs of Infrastructure Sector, Post-Disaster Reconstruction........................................ 66
Table 7: Disaster Risk Management List of Studies .................................................................................... 67
Table 8: Environment Actions and Results Framework .............................................................................. 76
Table 9: Environment List of Studies .......................................................................................................... 79
Table 10: Public Investment Management Profile of Kerala ...................................................................... 80
Table 11: Assessment of Essential PIM features (Kerala) ........................................................................... 89
Table 12: Water Resource Management Institutions and Policy Framework .......................................... 116
Table 13: Water Resource Management Information and Analysis ......................................................... 117
Table 14: Water Resources Investment Planning and Implementation ................................................... 118
Table 15: Water Resources Management Actions and Results Framework ............................................. 121
Table 16: Technical Studies and Assessments .......................................................................................... 124
Table 17: Status of Kerala on SDGs ........................................................................................................... 126
Table 18: Status of Kerala and India on various indicators pertaining to targets under SDG:6 ............... 127
Table 19: Water Supply Actions and Results Framework ......................................................................... 134
Table 20: Proposed Investments of Kerala Water Authority (Water Supply)........................................... 136
Table 21: Proposed Investments of KRWSA (Water Supply) .................................................................... 137
Table 22: Water Supply List of Studies ..................................................................................................... 138
Table 23: Water Sanitation Actions and Results Framework ................................................................... 149
Table 24: Water Sanitation List of Studies ................................................................................................ 150
Table 25: Urban / Rural Actions and Results Framework ......................................................................... 155
Table 26: Urban List of Studies ................................................................................................................. 161
Table 27: The Post-Flood Recovery Works Carried Out by the PWD........................................................ 164
Table 28: Roads Activities to be Taken up for Sector Reforms ................................................................. 170
Table 29: Roads Actions and Results Framework ..................................................................................... 174
Table 30: Roads List of Studies.................................................................................................................. 178
Table 31: Subordinate Agencies under the Transport Department of Kerala .......................................... 180
Table 32: Length of Roads Severely Affected/Destructed (district-wise) due to the Floods.................... 185
Table 33: Factors that contribute to challenges in the transportation sector ......................................... 186
Table 34: Resilience in Kerala's Transportation Sector at a State and ULB Level ..................................... 191
Table 35: Aspects of Transportation Planning .......................................................................................... 194
Table 36: Transportation Actions and Results Framework ....................................................................... 200
Table 37: Transportation List of Studies ................................................................................................... 203
Table 38: Forestry Actions and Results Framework.................................................................................. 213
Table 39: Forestry List of Studies .............................................................................................................. 218
Table 40: Agriculture Actions and Results Framework ............................................................................. 231
Table 41: Priorities and Criteria for Animal Husbandry ............................................................................ 246
Table 42: Priorities and Criteria for Dairy Development .......................................................................... 246
Table 43: Animal Husbandry, Dairy Development Actions and Result Framework.................................. 247
Table 44: Animal Husbandry Studies and Assessments ............................................................................ 251
Table 45: Summary Framework of Specific Development Objectives (SDOs) and Results Areas for Greater
Resilience and Sustainability of Fisheries Sector Revitalization ............................................................... 263

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 Table 46: Fisheries Actions and Results Framework ................................................................................. 265
Table 47: Fisheries List of Studies ............................................................................................................. 268
Table 48: Livelihoods Actions and Results Framework ............................................................................. 277
Table 49: Livelihoods List of Studies ......................................................................................................... 284
Table 50: Land Actions and Results Framework ....................................................................................... 291
Table 51: Land List of Studies.................................................................................................................... 293
Table 52: Overview of Disaster Effects and Recovery Needs ................................................................... 294
Table 53: Summary of Investments required for Rebuilding Kerala ......................................................... 295
Table 54: Fiscal Assumptions to Accommodate RKDP .............................................................................. 301
Table 55: Scenario Analysis ....................................................................................................................... 302
Table 56: Scenario I (RKDP Implemented Over 3 Years) ........................................................................... 303
Table 57: Scenario II (RKDP Implemented Over 4 Years) .......................................................................... 303
Table 58: Scenario III (RKDP Implemented Over 5 Years) ......................................................................... 303
Table 59: Scenario IV (RKDP Implemented Over 6 Years) ........................................................................ 304
Table 60: Maximum FD/GSDP Ratio due to RKDP .................................................................................... 304
Table 61: Funding Structure...................................................................................................................... 309
Table 62: Composition of the Departmental Committee ......................................................................... 320
Table 63: The Matrix of Idea Generation .................................................................................................. 321
Table 64: Monitoring and Evaluation Framework .................................................................................... 325
Table 65: Result and Performance Indicators Framework ....................................................................... 328
Table 66: Sectoral Financial Requirement ................................................................................................ 338
Table 67: Detailed Sector-wise Investment Plan ...................................................................................... 340

List of Figures
Figure 1: Flood affected areas plotted against the flood prone areas of Kerala ........................................ 23
Figure 2: Share of disaster effects across sectors ....................................................................................... 26
Figure 3: Position and purpose of Rebuild Kerala Initiative........................................................................ 31
Figure 4: Programmatic Approach of Rebuild Kerala Initiative .................................................................. 34
Figure 5: Process for idea generation under Rebuild Kerala Initiative ....................................................... 39
Figure 6: Top-down versus bottom-up approach to climate proofing and adaptation.............................. 48
Figure 7: An illustration of the cross-sectoral linkages and disaster risk reduction ................................... 48
Figure 8: New structure proposed for DRM financing ................................................................................ 53
Figure 9: insured vs Uninsured Loss............................................................................................................ 61
Figure 10: Sectors accounting >90% of D&L and R&R Needs ..................................................................... 61
Figure 11: Pre- and Post- Financing instruments for Disaster Risk Financing............................................. 62
Figure 12: Natcat Protection Gap in India, nearly 90% uninsured losses ................................................... 63
Figure 13: Recovery & Reconstruction Cost and Financing Revenue Deficit as a Proportion of Market
Borrowing.................................................................................................................................................... 63
Figure 14: Public Investment Actors and Process ....................................................................................... 83
Figure 15: Breakdown of Public Investment in Kerala ................................................................................ 84
Figure 16: Capital expenditure share by category 2016-2017 .................................................................... 85
Figure 17: Approved KIIFB projects by sector (2017) ................................................................................. 86
Figure 18: Cost overrun of centrally sponsored projects by State ............................................................. 87
Figure 19: Share of disaster effects and recovery needs by sector ............................................................ 89
Figure 20: Recovery needs by infrastructure subsectors. Total recovery needs: Rs. 15,400 crore ............ 89
Figure 21: Types of Data ............................................................................................................................. 97

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Figure 22: Kerala State Water Data and Analytics Centre ........................................................................ 101
Figure 23: Significant areas of Kerala that experience climate risk .......................................................... 103
Figure 24: Natural Resources Issues in Three Regions of Kerala .............................................................. 107
Figure 25: Root Causes of Vulnerability in Kerala ..................................................................................... 108
Figure 26: Illustrative Diagram of the Multiple Stakeholders in Kerala River Basins ............................... 111
Figure 27: Modernizing Institutional Infrastructure ................................................................................. 112
Figure 28: Towards a Resilient Kerala ....................................................................................................... 115
Figure 29: Institutional Engagement in Roads .......................................................................................... 166
Figure 30: Critical Reform Pillars for Roads .............................................................................................. 169
Figure 31: Railway Network of Kerala ....................................................................................................... 182
Figure 32: Inland Waterway Network, Kerala ........................................................................................... 183
Figure 33: Percentage distribution of Motor Vehicle, Kerala 2018 .......................................................... 184
Figure 34: Road Accidents in Kerala.......................................................................................................... 190
Figure 35: Transport Resilience perspectives ........................................................................................... 191
Figure 36: Conceptual representation of Resilient Transport .................................................................. 192
Figure 37: Characteristic and conceptual diagram for transport resilient high-speed corridor ............... 200
Figure 38: Strategic Frameworks for Improving the Resilience of the Animal Husbandry & Dairy Sectors
.................................................................................................................................................................. 240
Figure 39: Fish production of Kerala during the period from 1977-78 to 2016-2017 .............................. 253
Figure 40: Farmed fish production in Kerala............................................................................................. 254
Figure 41: Approach to enhancing fish availability, affordability, and accessibility ................................. 260
Figure 42: Two-pronged approach for Tourism Sector............................................................................. 277
Figure 43: Fiscal Indicators (% of GSDP) ................................................................................................... 297
Figure 48: The Fiscal Position of the State under the Four RKDP Implementation Scenarios .................. 305
Figure 50: The Implementation and Coordination Arrangements (State and Off-budgetary
Arrangements) .......................................................................................................................................... 317
Figure 52: Institutional Arrangements for Monitoring and Evaluation .................................................... 327

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Acronym List
ADAK: Agency for Development of Aquaculture Kerala EAP: Externally Aided Projects
ADB: Asian Development Bank ECBs: External Commercial Borrowings
AEMUs: Agroecological Management Units ECMWF: European Centre for Medium-Range Weather
AFD: Agence Française de Développement Forecasts
AHD: Animal Husbandry Department EDCs: Eco-Development Committees
AIFs: Alternate Investment Funds EEZ: Exclusive Economic Zone
AIIB: Asian Infrastructure Investment Bank EIA: Environmental Impact Assessment
AMRUT: Atal Mission for Rejuvenation and Urban EOC: Emergency Operations Centre
Transformation EPR: Extended Product Responsibility (EPR)
APIs: Application Programming Interfaces ESA: European Space Agency
ATMA: Agriculture Technology Management Agency FA: Financial Advisor
BFT: Bio- floc based farming technology FAO: Food and Agriculture Organization
CADRF: Climate Adaptation and Disaster Resilience Fund FD: Fiscal Deficit
CAG: Comptroller and Auditor General FIDF: Fisheries and Aquaculture Infrastructure
CAPEX: Capital Expenditures Development Fund
CBDRM: Community-Based Disaster Risk Management FIRMA: The Fiduciary and Investment Risk Management
CCDU: Communication and Capacity Development Unit Association
CER: Centre for Eco-Restoration FMPs: Fisheries Management Plans
CERF: Central Emergency Response Fund FRBM: Fiscal Responsibility and Budget Management
CFC: Central Finance Commission GDP: Gross Domestic Product
CMF: Crisis Management Fund GFD: Gross Fiscal Deficit
CMP: Comprehensive Mobility Plan GIC: General Insurance Corporation
CRZ: Coastal Regulation Zone GIS: Geographical Information Systems
CSOs: Civil Society Organizations GoI: Government of India
CTP: Chief Town Planner GoK: Government of Kerala
CWC: Central Water Commission GPs: Gram Panchayats
CWRDM: Centre for Water Resources Development and GSDP: Gross State Domestic Product
Management HLEC: High-Level Empowered Committee
CZMP: Coastal Zone Management Authority HUDCO: Housing and Urban Development Corporation
DBFOT: Design Build Finance Operate and Transfer Limited
DDD: Dairy Development Department HUDCO: The Housing and Urban Development
DDMA: District Disaster Management Authority Corporation Limited
DEM: Digital Elevation Model IAH & VB: Institute of Animal Health and Veterinary
DILRMP: Digital India Land Record Modernization Biologicals
Programme ICCS: Institute for Climate Change Studies
DoA: Department of Agriculture ICE: Integrated Concurrent Engineering
DoECC: Directorate of Environment & Climate Change ICG: Indian Coast Guard
DoF: Department of Fisheries ICT: Information and Communications Technology
DPCs: District Planning Committees IMD: Indian Meteorological Department
DPs: Development Plans IoT: Internet of Things
DRFI: Disaster Risk Financing and Insurance IPCC: Intergovernmental Panel on Climate Change
DRM: Disaster Risk Management IRS: Incident Response System
DRR: Disaster Risk Reduction ISRO: Indian Space Research Organization
DSS: Decision Support System IWRM: Integrated Water Resources Management
EAFM: Ecosystem Approach to Fisheries Management JICA: Japan International Cooperation Agency
EAP: Emergency Action Plans JLGs: Joint Liability Groups

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JRDNA: Joint Rapid Damage Needs Assessment NASA: National Aeronautics and Space Administration
KAPCO: Kuttanad and Alappuzha Prosperity Council NBA: National Biodiversity Authority
KCCL: Kerala Communicators Cable Limited NBAP: National Biodiversity Action Plan
KCZMA: Kerala Coastal Zone Management Authority NCDC: National Cooperative Development Corporation
KDA: Kole Development Agency NCESS: National Centre for Earth Sciences Studies
KDFWFB: Kerala Dairy Farmers Welfare Fund Board NDRF: National Disaster Response Force
KfW: Kreditanstalt für Wiederaufbau NH: National Highway
KFWFB: Kerala Fishermen’s Welfare Fund Board NHAI: National Highways Authority of India
KIIFB: Kerala Infrastructure Investment Fund Board NIDA: NABARD Infrastructure Development Assistance
KMBR: Kerala Municipal Building Rules NOAA: National Oceanic and Atmospheric Administration
KPBR: Kerala Panchayat Building Rules NSS: National Service Society
KRBC: Kerala Road and the Bridges Development NSSO: National Sample Survey Office
Corporation O&M: Operations and Maintenance
KRDCL: Kerala Rail Development Corporation Limited ODF: Open Defecation Free
KRF: Kerala Road Fund OPEX: Operating Expenses
KRFB: Kerala Road Fund Board PAH: Project Affected Household
KRSA: Kerala Road Safety Authority PAP: Project Affected People
KRWSA: Kerala Rural Water Supply and Sanitation Agency PDNA: Post-Disaster Needs Assessment
KSBB: Kerala State Biodiversity Board PEFA: Public Expenditure and Financial Accountability
KSDI: Kerala State Spatial Data Infrastructure PMAY: Pradhan Mantri Avas Yojna
KSDMA: Kerala State Disaster Management Authority PMFBY: Pradhan Mantri Fasal Bima Yojana
KSEB: Kerala State Electricity Board PMKSY: Pradhan Mantri Krishi Sinchai Yojana
KSEOC: Kerala State Emergency Operations Centre PSM: Procurement Services Manager
KSIDC: Kerala State Industrial Development Corporation PWD: Persons with Disability
KSPCB: Kerala State Pollution Control Board PWD: Public Works Department
KSRTC: Kerala State Road Transport Corporation PWS: Piped Water Supply
KSTP: Kerala State Transport Project R&BD: Roads and Buildings
KSUDP: Kerala Sustainable Urban Development Project RBI: Reserve Bank of India
KTDFC: Kerala Transport Development Finance RBMA: River Basin Management Authority
Corporation RD: Revenue Deficit
KVASU: Kerala Veterinary and Animal Sciences University RFID: Radio-frequency Identification
KWA: Kerala Water Authority RIDF: Rural Infrastructure Development Fund
LAF: Liquidity Adjustment Facility RKDP: Rebuild Kerala Development Programme
LAPCC: Local Action Plan for Climate Change RKI-IC: Rebuild Kerala Initiative Implementation
LIC: Life Insurance Corporation Committee
LSGD: Local Self Government Department RKI: Rebuild Kerala Initiative
LSGIs: Local Self Government Institutions RT: Responsible Tourism
M&E: Monitoring and Evaluation RTDSS: Real-Time Decision Support Systems
Major District Roads (MDR) SAPCC: State Action Plan on Climate Change
MASDAP: Malawi Spatial Data Platform SBSAP: State Biodiversity Strategies and Action Plan
MCS: Monitoring, Control and Surveillance SCDP: Safety Corridor Demonstration Project
MGNREGA: Mahatma Gandhi National Rural Employment SDGs: Sustainable Development Goals
Guarantee Act SDLs: State Development Loans
MIS: Management Information Systems SDMA: State Disaster Management Authority
MLD: Millions of Litres Per Day SDMP: State Disaster Management Plan
MVD: Motor Vehicles Department SEIAA: State Environmental Impact Assessment Agency
NABARD: National Bank for Agriculture and Rural SFC: State Finance Commission
Development SGST: State Goods and Services Tax

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SH: State Highway ULB: Urban Local Bodies
SHGs: Self-help Groups UMTA: Unified Metropolitan Transport Authority
SIAD: State Institute for Animal Diseases UN-CBD: United Nations Convention on Biological
SLR: Statutory Liquidity Ratio Diversity
SLWM: Solid and Liquid Waste Management UN: United Nations
SMEs: Small and Medium Enterprises VAT: Value-added Tax
SPC: Student Police Cadet VFPCK: Vegetable and Fruit Promotion Council Keralam
SPF: Specific Pathogen Free VMS: Variable Message Signs
SPR: Specific Pathogen Resistant VSSs: Vana Samrakshana Samithies
SPVs: Special Purpose Vehicles WASH: Water, Sanitation and Hygiene
TDR: Transfer of Development Rights WB: World Bank
TPA: Third Party Auditor WBCIS: Weather Based Crop Insurance Scheme
TPD: Tons Per Day WRD: Water Resources Department
TSG: Technical Support Group WRIS: Water Resources Information System

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Executive Summary
The Government of Kerala (GoK) responded to the devastating August 2018 Floods and Landslides with
immediate relief operations. The timely and efficient rescue and relief operations saved many lives. The
GoK’s efforts were heavily supported by the affected Keralite communities mobilizing on their own. The
people of Kerala showed remarkable resilience in the face of adversity to the extent that within one week
of flood waters receding, most people returned to their homes to rebuild their lives.
The floods highlighted a number of structural constraints that left Kerala unprepared for major natural
disasters or climate change shocks. This included inadequate policies and institutional frameworks to
manage and monitor critical natural resources such as water and land, the absence of risk-informed spatial
and sectoral planning policies and frameworks that led to extensive urban sprawl, unmanaged
construction in hazard prone areas and exclusion of disaster risk preparedness in key socioeconomic
sectors, gaps in basic infrastructure in urban areas along with aging and poorly maintained infrastructure,
weak capacity of institutions to anticipate and respond to extreme events, poor availability and sharing of
reliable data for disaster risk planning and management due to inadequate hydro-met system, and limited
fiscal resources as well as absence of ex ante financing modalities for risk pooling and sharing. Due to
these systemic weaknesses Kerala was at the mercy of the 2018 floods and landslides.
To recover from the floods in a resilient and sustainable manner, it was felt that a traditional approach to
recovery and reconstruction would be insufficient. The State not only had to address the fundamental
drivers of floods but also better prepare for future disasters. This would be through the development of
an inclusive and comprehensive roadmap for a green and resilient Kerala. To facilitate this process, the
Government established the Rebuild Kerala Initiative (RKI) to “bring about a perceptible change in the
lives and livelihoods of its citizens by adopting higher standards of infrastructure for recovery and
reconstruction, and to build ecological and technical safeguards so that the restructured assets could
better withstands floods in the future”. The RKI is the dedicated State-level institutional modality for
formulating and coordinating the implementation a Resilient Kerala. Through establishing the RKI, the
GoK puts in place a streamlined and transparent process of decision making for the comprehensive and
resilient recovery and rebuilding from the 2018 floods.
The RKI’s mandate is to develop, coordinate, facilitate and monitor the Rebuild Kerala Development
Programme (RKDP) through a participatory and inclusive process. The RKDP constitutes the State’s
strategic roadmap for a Green and Resilient Kerala. The RKDP encompasses crosscutting and sector-based
policy, regulatory and institutional actions as well as priority investment programs that are critical for
resilient and sustainable recovery and rebuilding of the State. It aims to catalyze rebuilding of Kerala in a
way that addresses key drivers of floods and other natural disasters and climate change risks and
strengthens preparedness against future disasters. Through the RKDP, the GoK aims to ensure a resilient
recovery and development pathway for a Nava Keralam.
The visionary roadmap proposed in RKDP is fully aligned with ongoing State priorities, programs and
projects that aim at enhancing the lives of the people in the State. Within the vision set out for Nava
Keralam, the RKI and the RKDP are guided by the goal of zero mortality due to disasters with minimum
economic losses and disruption of services. Therefore, the principles of risk-informed programming will
be embedded across all RKDP sector recovery plans with additional investments for disaster preparedness
and response. Additionally, many proposed schemes of the State Planning Board’s Annual Plan 2017-2018
are supported or further developed in the RKDP, such as instituting special agriculture zones, flood
management of the wetland and coastal zone ecosystems, supporting village and small enterprise sectors,
strengthening the bus system, road improvements through scientific development, capacity building and
service delivery improvements in urban development, and so forth.

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The major proposals underlined in RKDP are noted below. This is not an exhaustive list of all the policy,
institutional and investment proposals in the RKDP but a compendium of the key ones.
Although the level of economic and human development is high in Kerala, the floods highlighted major
gaps in infrastructure that contributed to the vulnerability of the State. The existing infrastructure is highly
vulnerable to disasters risks and climate change. Further, despite low poverty rates overall, there are
pockets of vulnerability that need targeted interventions to strengthen the resilience of the State’s
population. However, the fiscal constraints of the State act as a hurdle to tackle these issues
comprehensively and in a short span of time. Hence there is an overarching need to maximize the
allocation of scarce resources and enhance the management quality of public institutions. Addressing
these challenges require greater focus on revenue enhancement, more prudent debt management and
improved quality of public expenditures, as well as further strengthening of key public sector agencies to
become more responsive, effective and efficient.

Disaster risk management -

 The floods highlighted the need for a comprehensive approach to addressing disaster and climate
change risks in the State. Kerala will, thus, embed inclusive disaster risk management (DRM) as a cross-
cutting theme across its major development activities and several of the key resilience related actions
will happen in relevant sectors.
 Based on the Sendai framework, four key pillars underpin Kerala’s preparedness to address disaster
and climate change risks: understanding disaster risk, strengthening disaster risk governance,
investing in disaster risk reduction for resilience, and enhancing disaster preparedness for effective
response. Within each of these pillars, a corresponding set of activities will drive the disaster risk and
climate change mitigation framework.
 A number of policy and institutional priorities have been identified to strengthen the frameworks for
DRM in the State. Among the most critical ones are: (1) updating State and District Disaster
Management Plans, prepare and/or updating city level DM Plans in five city corporations; (2)
reviewing and upgrading flood protection design standards in consultation with concerned
departments; (3) improving access to disaster risk information in coordination with KSDI, NDEM and
other existing platforms; (4) conducting comprehensive 1:10,000 scale land-use mapping and a
1:25,000 scale multi-hazard, vulnerability and risk assessment and preparing risk maps; (5) developing
disaster damage and loss databases; and (6) preparing a State Disaster Risk Finance and Insurance
Strategy.
 With regard to safeguarding communities, infrastructure and livelihoods better, Kerala will (1)
enhance community preparedness and response capability and establish a Civil Defense Force in all
districts; (2) construct multi-purpose emergency shelters; (3) construct and retrofit existing education
and health infrastructure located in hazard-prone areas to higher standards; (4) formulate and
implement a long-term Coastal Zone Disaster Mitigation Plan, Drought Preparedness and
Management Plan, Integrated Flood Risk Management Plan and Landslide Management Strategy; (5)
improve hydro-meteorological early warning systems including establishment of last mile hazard
communication systems; and (6) strengthen State Disaster Response Force, Fire and Rescue Services,
and Police with appropriate equipment.

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Environment -
 At a policy level, developing State biodiversity strategies and action plan, policy for conservation of
eco-sensitive areas and banning specific uses of throwaway/single use plastic materials.
 Declaration of State wetlands will be followed up with improved conservation and management of
coasts and wetlands, including strengthening district level monitoring mechanism for wetlands.
 On the institutional front, strengthening the DoECC, improving the sharing of environmental data and
information, and establishing Green Technology Centres at the local level are important.
 In terms of investments, the priorities are undertaking programmes to for integrated coastal zone
management, investments to conserve the three Ramsar wetlands and pilot projects in low-carbon
economy.
Water resources management –
 Among the drivers of the 2018 floods were longstanding issues associated with poor water resource
and reservoir management. On the policy and institutional front, a major overhaul would include the
restructuring of Water Resources Department (WRD) by basin groups and strengthening coordination
across key agencies, including the WRD, KSEB, KSDMA, agriculture and fisheries; creation of a River
Basin Management Authority (RBMA) to regulate water resources development and perform water
resources management functions; establishing a Central Command Centre for integrated reservoir
operation system in line with the pending Dam Safety Bill while strengthening the Dam Safety
Authority with clear roles and responsibilities, and finally reorganizing the Irrigation Department
around river basins.
 To strengthen information and analysis, the key proposal is establishing a Kerala Water Resources MIS
in RBMA with interface with other systems under CWRDM, EoC, WRIS, etc.
 Reforming water allocation principles and modalities, including pricing, to ensure more equitable and
efficient sharing of water resources for key water stakeholders, especially taking into account the
needs of the poor and the vulnerable.
 In addition to assessing water storage capacity of dams, lakes, wetlands and other bodies in the
State, developing masterplans, including investments, for Kuttanad and other critical flood plains
and basin/catchment management plans for key catchments.
Water supply -
 Kerala lags notably on delivery of reliable, efficient and sustainable piped water to its citizens. This
has serious implications on health and wellbeing of the population, especially for vulnerable groups
and during natural disasters. To expand coverage, improve resilience of water supply infrastructure
and enhance quality of service delivery, on the policy and institutional front, the key focus will be
strengthening effectiveness through new institutional models of service delivery, including devolution
of service delivery to local level, as well as strengthening the resilience of the networks and treatment
plans through improved standards, and improving financial sustainability of water provision through
reduced non-revenue water and improved cost recovery.
 Among key capital investments, in urban areas will be the development of 10 new WTP schemes
covering ten municipalities with treatment plants and distribution components as well as the
completion of seven existing schemes that require transmission and distribution components, and in
rural areas will be 12 schemes that require distribution components and 17 schemes that require
transmission and distribution components.

13
Sanitation -
 Lack of adequate sanitation led to dumping of liquid wastes in water bodies, leading to their reduced
carrying capacity as well as propagation of water borne diseases among Keralites. The first critical step
towards safe sanitation would be adopting a Sanitation and Waste Management Strategy and
Programme by the Government. As part of the Programme, major investments will be undertaken to
develop infrastructure for septage management and storm water drainage in ULBs.
 To strengthen the institutional foundations in sanitation, an inter sectoral WASH coordination
platform of all stakeholders working in drinking water supply, sanitation, waste management and
hygiene domain would be established.
Urban -
 As Kerala becomes increasingly urban, safeguarding cities and towns through resilient spatial
planning, infrastructure development and service delivery is critical for the population and the
economy. Major policy reform priorities are revising the annual planning and budgeting framework
for Urban Local Bodies (ULBs) to avoid fund fragmentation and enable multi-year investment
planning, along with amending the Town and Country Planning Act to ensure the preparation,
notification and enforcement of masterplans in a time bound manner, and strengthening the building
regulations regime to ensure improved standards of resilience to natural disasters and more
transparent procedures for building plan approval in the State.
 At the municipal level, the focus would be on strengthening capacities in planning, infrastructure
development, service delivery and revenue generation, while also making sure that the all the ULBs
complete risk-informed master plans and capital investment plans over a five-year period.
 Municipalities will be supported in undertaking investments in resilient infrastructure, especially in
areas and sectors that are prioritized in their master plans and capital investment plans. These could
cover sectors like drainage, solid waste management, sanitation, other environmental infrastructure,
etc.
Roads and bridges -
 Roads and bridges are key economic assets and ensuring a resilient road network is critical for
enhanced preparedness against future natural disasters. Towards this, undertaking a comprehensive
disaster and climate risk assessment of PWD road network and developing a State Road Transport
Strategy/Master Plan to articulate a roadmap for a demand-driven balanced transport modal share in
the State are among key priorities in the short term.
 In the medium term, the focus would be streamlining and strengthening key road sector agencies to
eliminate institutional and resource fragmentation and ensuring greater technical and financial
capacities of the PWD.
 The PWD also aims to institutionalise a Road Maintenance Management System (RMMS) to
strengthen the management of the most critical part of the road network (the core road network) as
well as performance-based maintenance contracting (PBMC) for asset management in the core road
network with provisions for emergency response. In support of this, strengthening contractor
capacities and developing a contractor performance rating framework.
 In terms of investments, contracting of 800 km of priority network using a landscape approach, which
includes assessment of geohazard and flooding/erosion risks, as well as initiating feasibility studies
using tools like Artificial Intelligence (AI), big data, satellite imagery etc. for select multi-modal

14
 corridors with high freight traffic volumes identified under the Master Plan. This resilient approach
would be extended to the rest of the network over time.
Transportation -
 The key elements of a resilient, sustainable and effective transportation system for Kerala include the
following: integration with land-use policy, making connections through multi-modal transportation
systems, addressing infrastructure gaps and points of friction in the system, revamping the bus
system, enhancing safety, increasing use of ICTs, improving economic viability for all transport
stakeholders and a robust public communication strategy.
 Among the priority policy and institutional are developing emergency management plans for public
transit agencies, approving the Kerala Metropolitan Transport Authority Bill, establishing a Transport
Sector Reform Group in the Transport Secretariat to take up issues like bus transport policy,
congestion charge policy, bus route rationalization and State logistics policy
 Potential strategic investments include pilot schemes for Intelligent Transport Management Systems
and establishing a high-speed corridor connecting the districts of Kerala longitudinally.
 Forestry -
 Given the experience of floods and landslides, emphasis will be on the strict implementation of Forest
Conservation Act, including the decision to allow no new openings in forest areas.
 Strengthening policies for reclamation and restoration of the abandoned and/or illegal mines and
quarries near forest as well as developing management action plans for ecologically sensitive zones
around Protected Areas will be pursued by the Government.
 In terms of investments and on-the-ground action, among the priorities are rehabilitating and
strengthening the forest infrastructure, habitat improvement of 20,000 ha over 5-year period and
integrated approaches to conversion of plantations to natural forests and maintenance.
Agriculture -
 The floods have highlighted the need to adopt an ecological approach for sustainable and resilient
agriculture development in Kerala. Echoing this, a major paradigm shift will be moving towards
agriculture based on agroecological zones and agroecological management units across Kerala.
Towards this, the State will be zoned into five major agroecological zones and the Agriculture
Department and allied agencies will be realigned in support of this policy and investment shift. Also,
as part of this, promoting disaster resilient crop varieties in specific agroecological zones.
 The State will be developing a strategic plan for agro-marketing of key Kerala crops, leveraging private
sector resources and capacities, as well as preparing detailed masterplans and actions plans for select
agroecological zones.
Animal husbandry -
 Animal husbandry has a key role in the livelihoods of poor households. Key priorities include re-
engineering the institutional framework for effective last mile delivery, reorganization of Animal
Husbandry and Diary Development Departments, developing veterinary services, improvements in
livestock and poultry development, strengthening R&D and fostering innovative technologies.
 Among the priority activities are establishing four distinct dairy development zones in the State and
providing support based on the characteristics of each zone, rolling out Herd Induction Programmes
to compensate for loss of milch animals due to the floods, introducing calamity-resistant

15
 dairying/livestock/poultry farming technologies, rolling out an extensive fodder development
programme, enacting laws for ensuring safety and quality of cattle and poultry feed and creating value
addition of milk, meat and poultry products to increase profitability and sustainability for producers.
Fisheries -
 Key objective in the fisheries sector is improving the availability of fish by increasing fish production
and reducing wastage along with enhancing employment and income generation for the fisher
community and minimizing loss of fish wealth. Towards achieving this objective, there are five priority
areas for attention: creating an enabling environment through policy and institutional improvements,
ensuring productive and sustainable management of marine fisheries and sustainable inland capture
fisheries, developing an environmentally sensitive aquaculture industry and optimizing the benefits
of a productive fisheries sector to advance social goals
 Priorities include formulating or strengthening policies related to deep sea fishing, seed certification
and seed production centres, feed mills standardization and promotion of integrated farming systems.
In parallel, establishing one-stop aquaculture centres and an advanced control room for online
tracking, communication mechanism and rescue along with modernizing and strengthening the
Matsyabhavans will support fishermen and fish farmers better.
 Among key areas of public and private investments are expanding aquaculture into more than 15000
hectares of inland water bodies, establishing fish multiplication centres, disease surveillance and
control laboratories, constructing boat building yards, and modernizing harbours, fish landing centres
and fish markets.
Livelihoods -
 Key livelihood and employment categories for resilient rebuilding are farm, off-farm (livestock,
poultry, fisheries, etc.) and non-farm livelihoods (manufacturing, trading and service enterprises,
including tourism, MSME, Kudumbashree, etc.), informal/unorganized sector workers, and skilled
labour. Short-term recovery measures would aim at mitigating the losses suffered by the most
vulnerable segments such as MGNREGS job card holders, SC/ST, fisherfolk, disabled, informal workers,
petty traders, women JLGs and micro-entrepreneurs. In the medium term, the focus would be on
strengthening livelihoods, self-employment avenues and skilling initiatives. Long-term measures will
involve disaster, climate and livelihood governance through active participation of stakeholders at the
grassroots level.
 Instituting policies for leased land cultivation that addresses aspects such as rehabilitation, issues of
land ownership, leased land regulations, decent wages and insurance, revisiting the 'Responsible
Tourism' policy framework to incorporate disaster and climate risks and the Microenterprise policy
framework to strengthen value chains, develop productive alliances with retailers, exporters and
other institutions, improve availability of financing, as well as developing Livelihood Action Plans (LAP)
at the local government level are priorities to be pursued.
 Providing an additional 50 days of paid wage labour under MGNREGS & Ayyankali EGS to the rural
and urban poor, supporting unorganized/informal sector workers recover lost capital and
compensating them for income lost, testing out a livelihood start-up programme for nano-
enterprises along the lines of Start-up Village Entreprenuership Programme, establishing a Crisis
Management Fund (CMF) for micro-entrepreneurs and women JLGs engaged in leased land farming,
and piloting a micro-insurance programme that would insure livelihood ventures from various
hazards and calamities are among the investment proposals in the livelihoods sector.

16
Land -
 Secure tenure is the key for reducing vulnerability and risks. Comprehensive and secure land records
offer critical protection of rights when population is displaced by a disaster. The main focus of securing
land records in the State would be by unifying and completing its land records and maps. Kerala has
made a good effort in implementing the land records modernization with constrained resources under
the Bhoomikeralam project and now through the Kerala Land Records Modernization Mission. These
efforts would now be amplified through concerted policy and institutional measures.
 Key priorities in strengthening land records and securing tenure would be adopting the Kerala Land
Administration and Management Act and operationalizing and strengthening the Kerala Land Records
Mission to allow unification of the land records and registry map work of the Department of Revenue,
Department of Land Records and Surveys, and the Department of Registration. The Mission would
involve a costed and timed programme for completing land records modernization in Kerala with
components for (1) Computerization of Land Records, (2) Survey/ Re-Survey, (3) Computerization of
Registration, (4) Modern Record rooms.
This document is divided into six chapters that present the above storyline. Chapter 1 focuses on the flood
event, looking at Kerala’s inherent vulnerability to disasters, the progression of the 2018 floods from the
start of rainfall in June to the abatement of the floods in the end of August, the immediate response of
the Government and its people and the quantification of the impacts and damages from the floods.
Chapter 2 presents the argument for a paradigm shift in the response to the floods through a
comprehensive, well-coordinated and multisectoral approach to resilient recovery of Kerala. The Chapter
introduces the RKI and the RKDP. The RKI has been created in response to the floods to “enable Kerala’s
resilient recovery and catalyse transformational shift towards risk-informed socio-economic development
through supporting sustainable communities, institutions, livelihoods and putting in place major
infrastructure” (G.O.(P)No.16/2018/P&EA). The RKI provides the institutional framework for the
rebuilding process of post-flood Kerala and acts as a vehicle to operationalize the RKDP roadmap which
presents the policy shifts, institutional actions and investments required for resilient rebuilding of Kerala.
This chapter outlines the aim, principles, structure and processes of RKI as well as the sectoral,
geographical and temporal scope of RKDP.
Chapter 3 details the cross-cutting foundational elements RKDP. These are elements are cross-sectoral,
i.e. they are priorities that are ingrained across sector specific roadmaps, and thus deserve special focus.
These foundational elements include Disaster Risk Management and Resilience, Environment and Climate
Change, Strengthening Institutional Efficiency and Resilience, and Open Data.
Chapter 4 investigates key sectors that were impacted by the floods and have a role in enhancing
resilience to future floods and disasters. It examines how each sector was impacted by the floods, analyses
legacy and current issues that hampered its rapid recovery, outlines proposed sector-specific approach to
resilient rebuilding, identifies specific interventions to support this approach, along with supplementary
technical studies and assessments. The key sectors covered by RKDP are Integrated Water Resource
Management, Water Supply, Sanitation, Urban, Roads and Bridges, Transportation, Forestry, Agriculture,
Animal Husbandry and Dairy Development, Fisheries, Livelihoods and Land. While this approach
comprehensively responds to the various drivers of the floods, the multi-sectoral nature of the
programme affords the opportunity to maximize the Programme’s goals, through capitalizing on mutual
gains between sectoral interventions. The multi-sectoral nature of the RKDP means there may be
challenges in execution, and to mitigate this the RKI will structure, coordinate, execute and monitor
progress to programme goals.

17
Chapter 5 delves into the details of the financing, institutional and implementation arrangements of RKDP.
Using the Joint Rapid Damage Needs Assessment (JRDNA) and the Post disaster Needs Assessment (PDNA)
estimates as a baseline, this chapter quantifies the investments required for rebuilding Kerala as per the
RKDP roadmap. This analysis along with a macroeconomic outlook and debt sustainability study of Kerala
State is used to determine the funds necessary for implementing RKDP and identify the potential public
and private sources of financing the RKDP. These include the State budget, the Central government
natural disaster assistance, the Kerala Flood Cess, assistance from multilateral and bilateral development
partners, loans from HUDCO, NABARD and other sources, crowdfunding, and private/non-traditional
sources of financing including Masala and Diaspora Bonds. There are numerous active partnerships with
national and international development agencies.
Given the multi-disciplinary and often complex nature of RKDP policy, institutional and investment
interventions, it is essential that there is a clear process and arrangement for implementation. The scale
of the disaster, planning required, implementation complexities, financial management and service
delivery calls for a dedicated institutional framework, which is further explained in Chapter 5. This
framework additionally includes clear processes and distribution of responsibilities for project
identification and selection within RKDP. Chapter 5 wraps up with details on the timeline and phasing of
RKDP, along with details on the institutional support framework required to facilitate project
implementation, such as through instituting singular contracted procurement management services and
third-party auditing for RKDP.
Chapter 6 presents the need for instituting a comprehensive and effective monitoring and evaluation
(M&E) system from an early stage, especially given the multitude of interventions and sectors involved in
the RKDP. An M&E framework is introduced along with the supplementary M&E institutional arrangement
and implementation mechanism. The chapter comes to an end with a preliminary results framework, that
uses key performance indicators to regularly measure RKDP progress made in achieving outputs,
outcomes, and processes goals.

18
 All about the 2018 Kerala Floods

1.1 How Vulnerable is Kerala to Disasters?

Kerala is highly vulnerable to natural disasters and the changing climatic dynamics given its location along
the sea coast and steep gradient along the slopes of the Western Ghats. It is prone to a host of natural
hazards such as cyclone, monsoon storm surge, coastal erosion, sea level rise, tsunami, flood, drought,
lightning, landslide (debris flows), land subsidence (due to tunnel erosion or soil piping) and earthquake.
Kerala’s State Disaster Management Plan assesses 39 types of known and reported hazard types in the
State that may turn disastrous in the event of lack of proper preparedness and risk reduction planning1.
Kerala has a humid tropical climate, the dominant climatic phenomena being the South-West (June to
September) and the North-East (October to December) monsoons. The former is more significant
producing 80% of the total annual rainfall. Kerala has an average annual precipitation of 3000 mm, with
about 90% of the rainfall occurring during the six monsoon months. The high intensity monsoon storms
heavy discharges in all the rivers and result in severe floods, making floods the most common of natural
hazards that affects the State. Nearly 14.8% of the State is prone to flooding2, and the proportion is as
high as 50% for certain districts. Landslides are a major hazard along the Western Ghats in Wayanad,
Kozhikode, Idukki and Kottayam districts (as seen in the weather led disaster that occurred in 2018). More
than 50% of Kerala’s land area is moderately to severely drought susceptible.
Kerala anticipates the effects of global climate change to bring an increase in extreme rainfall and with it
the probability of urban flooding during the north-east monsoon period, a water shortage during peak
summer months, along with a subsequent increase in urban temperature, and a potential increase in
coastal erosion along the highly populated coastline due to rising sea-levels.
The impacts of climate change are aggravated by lack of adaptive capacity of the State to floods, droughts,
and mudflows are expected to increase in both frequency and severity because of climate change.
Another impact being witnessed is progressive coastal erosion affecting nearly 63%3 of the State’s 580 km
of coastline.

Table 1: Kerala’s exposure to climate and geophysical hazards

Hazard Time Frame Description of hazards

Extreme Current Observed decreasing trend based on rainfall data for the last 100 years;
Precipitation extreme events expected to increase in frequency
and Flooding
Future Rainfall trends in Kerala over the past decade exhibit sporadic long spells of
heavy rains, leading to an increasing likelihood of the of extreme rainfalls and
flooding

1
Kerala State Disaster Management Authority: Government of Kerala, State Disaster Management Plan 2016,
http://sdma.kerala.gov.in/publications/DMP/Kerala%20State%20Disaster%20Management%20Plan%202016.pdf
Kerala State Disaster Management Authority: Government of Kerala, Kerala State Disaster Management Plan Profile,
http://documents.gov.in/KL/16344.pdf
2
CESS, 2010
3
Shoreline Change Assessment of Kerala, National Centre for Sustainable Coastal Management, Kerala, June 2018

19
 Drought Current The State of Kerala experiences seasonal drought conditions every year during
the summer months. The State of Kerala experiences seasonal drought
conditions every year during the summer months. The trend analysis on rainfall
data over the last 100 years reveals that there is significant (99%) decreasing
trend in most of the regions of Kerala especially in the month of January, July
and November.

Future Based on State's DRM analysis, it is evident that more than 50% of the land area
of the State is moderately to severely drought susceptible, majorly on the
drinking water side.

Sea Level Rise Current The historic sea level rise for Cochin is estimated to have been 2 cm in the last
one century.

Future Sea level is on the rise due to global warming and the projected Sea Level Rise
(SLR) along Kerala coast on a conservative estimation is about 100 to 200 mm
over the next 100 years. Vulnerability to Sea Level Rise would be of alarming to
the majority coastal communities which live on sandy coasts, most of which are
barrier beaches or spits. Backwater banks, islands and filtration ponds/paddy
fields are other sections of the coastal zone which are highly susceptible to Sea
Level Rise.

Strong Winds Current The State has identified strong winds as a state specific disaster calamity, that
has been experienced often in the last decade.

Future The maximum wind speed from tropical cyclones is expected to increase, but
estimates are highly uncertain

Tsunami Current The 590 km coast of Kerala is one of the most densely populated land areas in
the country. This coastline is exposed to high waves, storm surges and Tsunami.
Indian Ocean Tsunami on 26 Dec 2004 affected the 250 km coastline with sea
water entering up-to 1.5 km inland.

Landslide Current Apart from floods the mountain regions of the State experience several
landslides during the monsoon season. It is known that a total of 65 fatal
landslides occurred between 1961 and 2009 causing the death of 257
individuals. In the recent floods in 2018, the State has suffered more than 5,000
small and big landslides and landslips, that emerged as a major cause of
economic and life loss in the floods.

Not exposed. Slightly exposed. Moderately exposed. Highly exposed.

Moderate potential
No potential impact. Low potential impact. High potential impact.
impact. Moderate risk
No risk Low risk
High risk

The Table4 below shows the susceptible/vulnerable areas and population exposure to major hazardous
phenomena in the State:

4
KSDMA

20
 Table 2: Area vulnerable to hazards

Hazard Number of taluks prone Susceptible area (km2) Population exposed

Landslides 50 5,619.7 2,799,482

Floods 75 6,789.5 7,795,816

Coastal Hazards 24 289.7 313205

Underlying Risk Drivers: Floods are the most common of natural hazards that affect the people,
infrastructure and natural environment in Kerala, and incidence of floods in the State is becoming more
frequent and severe. Other than floods, the State is also vulnerable to droughts, landslides, storm surges
and Tsunamis. Some contributors that exacerbate the disaster risks in the State are:
 Unsustainable and weak management of natural resources and poor awareness of the changing
climatic conditions. Degrading environment due to extensive exploitation of the natural resources
and deforestation, coastal erosion, monsoon storm surges, sea level rise and land subsidence due to
tunnel erosion or soil piping (a creeping slow hazard that emerged from analysis of landslides).
 Lack of awareness and anticipation of disaster risks, including weak institutional capacity to deal with
high-intensity disasters, inadequate early warning systems and protocols respectively, limited
Disaster Risk Management (DRM) and slow roll out of community-based DRM activities. Additionally,
there is limited consideration of disaster risk within social and economic sectors, partly because of
competing demands on limited financial resources and inadequate capacity.
 Poor maintenance of existing assets, which accentuates risk and increases the State’s vulnerability to
natural disasters. Examples are: deteriorating, aging and poorly maintained infrastructure (including
irrigation channels); minor major and irrigation dams managed by too many agencies; erosion of river
embankments, roads, bridges, and encroachments into water bodies and sand mining from rivers,
water channels and canals leading to narrowing carriage capacity of water channels; and poor solid
waste management and sanitation disposal/treatment facilities.
 Inadequate storm water drainage and filling of traditional water storage reservoirs, which increases
the pluvial flood risks. An increase in flood plain occupancy and reclamation of water bodies and
wetlands results is also increasing flood damages. Riverine flooding is a recurring event consequent
to heavy or continuous rainfall exceeding the absorptive capacity of soil and flow capacity of streams
and rivers. This causes a water course to overflow its banks onto flood plains.
 High density of urban areas. This density includes a population of 860 people/km2 (2011 Census),
narrow roads, dense and intrinsic road network and density of coastal population in vulnerable areas.
Rapid urbanization influenced habitations into uncontrolled expansion on both banks of the
rivers/water bodies thereby encroaching into water channels/bodies and constricting the floodplains.
 Absence of risk-informed urban planning. Non-compliance to design standards and non-
incorporation of resilient features in urban infrastructure was reaffirmed by the widespread flooding
in urban and semi-urban areas of Kerala. Master plans prepared by the Chief Town Planner (CTP) are
still awaiting feedback from the Local Self Government Institutions (LSGIs) to enable appropriate
rectification and issue of notification of approval of the masterplans for the respective LSGIs. Till date,
master plans of only 19 local bodies have been notified and there is little evidence of hazard risk

21
 informed planning process in the State. Lack of notification has resulted in unplanned
development/expansion in urban areas.
 Poorly enforced land use pattern and practices: Current land use regulations are in the State are
based on (a) the Paddy and Wetland Act, (b) the River Management Act; and (c) the Kerala Municipal
Building Rules (KMBR) and the Kerala Panchayat Building Rules (KPBR). These orders do not ideate
into a single land management policy/regulation for enforcement agencies to pursue due to the
regulatory and not restricting nature of these orders. A commonality of law for land use is absent, due
to which business and habitation zones has overlapped over the years.

1.2 What Happened during the 2018 Floods?

Between June 1 and August 19, 2018, Kerala received abnormally high rainfall, (about 42% above normal),
resulting in the worst ever floods since 1924, impacting almost 5.4 million people - one-sixth of the State’s
population. Kerala received 2346.6 mm of rainfall from 1 June 2018 to 19 August 2018 in contrast to an
expected 1649.5 mm of rainfall (IMD data). This rainfall was about 42% above the normal. Further, the
rainfall over Kerala during June, July and 1st to the 19th of August was 15%, 18% and 164% respectively,
above normal. The heavy monsoon brought widespread flooding to several districts of Kerala State and
triggered thousands of small to big landslides. Around 1,259 out of 1,664 villages spread across its 14
districts were affected. Seven districts were worst hit, where the whole district was notified as flood
affected: Alappuzha, Ernakulam, Idukki, Kottayam, Pathanamthitha, Thrissur and Wayanad. Water levels
in several reservoirs were almost near their capacity due to continuous rainfall. Due to heavy rainfall, the
first onset of flooding occurred towards the end of July. Thirty-five dams across the State were opened to
release flood runoff. All five overflow gates of the Idukki Dam were opened for the first time in 26 years.
Heavy rains in Wayanad and Idukki caused severe landslides.
Several districts were inundated for more than two weeks due to heavy rains induced floods. The limited
capacity of Vembanad Lake and Thottappally spillway worsened the flooding in the Kuttanad region and
the backwaters. The worst affected districts were Wayanad (Kabini sub-basin), Idukki (Periyar sub-basin),
Aluva & Chalakudy (Periyar and Chalakudi sub-basins), Chengannur and Pathanamthitta (Pamba sub-
basin). According to flood-affected area maps provided by the National Remote Sensing Centre (NRSC),
between 16th July to 28th August, 65,188 hectares of the land area was inundated. Figure 1, on the next
page, shows the flood affected areas in this time span. Many areas were under water for more than two
weeks. Nearly 341 landslides were reported from 10 districts. Idukki district was ravaged by 143 landslides.
The devastating incident resulted in a total of 498 casualties, with over 5.4 million people affected with
loss of assets and property and 1.4 million people displaced, forcing them to temporarily move to relief
camps during the peak of the disaster. Many of the displaced were women and children.

22
 Figure 1: Flood affected areas plotted against the flood prone areas of Kerala

Source: IMD, State Relief Commissioner, Disaster Management, Additional Memorandum, Kerala Floods 201

23
 Table 3: District wise rainfall during 1 June 2018 to 22 August 2018

District Normal Rainfall (mm) Actual Rainfall (mm) Departure from Normal (%)

Kerala State 1701.4 2394.1 41 Excess

Alappuzha 1380.6 1784 29 Excess

Kannur 2333.2 2573.3 10 Normal

Ernakulam 1680.4 2477.8 47 Excess

Idukki 1851.7 3555.5 92 Large Excess

Kasaragod 2609.8 2287.1 -12 Normal

Kollam 1038.9 1579.3 52 Excess

Kottayam 1531.1 2307 51 Excess

Kozhikode 2250.4 2898 29 Excess

Malappuram 1761.9 2637.2 50 Excess

Palakkad 1321.7 2285.6 73 Large Excess

Pathinamthitta 1357.5 1968 45 Excess

Thiruvananthapuram 672.1 966.7 44 Excess

Thrissur 1824.2 2077.6 14 Normal

Wayanad 2281.3 2884.5 26 Excess

Sources: Study Report Kerala Floods of August 2018, Government of India: Central Water Commission Hydrological Studies
Organization, September 2018

24
1.3 How did the Government of Kerala Respond?
The Government of Kerala conducted timely and efficient rescue and relief operations with heavy support
of communities mobilizing on their own, and effective application of information technology and social
media by voluntary youth groups. The people of Kerala also showed remarkable resilience in the face of
the adversity to the extent that within one week of flood waters receding, most people returned to their
homes to rebuild their lives. The administrative machinery of the government was in full force during
relief operations despite many of their own families and property being adversely impacted in floods. The
Kerala State Disaster Management Authority (KSDMA) played a critical role in coordinating emergency
response, rescue and relief operations during and after the floods. Relief assistance was provided to
people in camps including immediate food supplies (rice, wheat and pulses), drinking water, kerosene and
other life-saving items. Food packets and assistance of Rs. 10,000 per family to clean inundated houses
were also disbursed. The State’s well-known poverty eradication and women’s empowerment
programme, Kudumbashree, played an extensive role in these efforts. Kudumbashree members cleaned
houses and public offices, provided counselling to families, managed community kitchens in affected
areas, collected relief material and distributed it in camps, provided assistance for packing of take-home
kits, supplied volunteers for various activities, housed flood victims in their homes, and conducted mass
cleaning activities in some districts. They also raised funds and contributed nearly Rs. 11.2 crores to the
Chief Minister’s Disaster Relief Fund.
The Central Government and several other states also provided support to GoK’s response and relief
efforts. Fifty-seven teams of National Disaster Response Force (NDRF) and 435 boats were deployed for
search and rescue in addition to five companies of paramilitary forces, armed forces and coast guards with
40 helicopters, 20 aircrafts, 2 ships, 10 columns and 10 teams of Engineering Task Force. In addition, the
fishing community of the State rendered voluntary assistance towards search and rescue. Nearly 669
boats that went out with 4357 fishermen are estimated to have saved at least 65000 lives.
The Prime Minister announced financial assistance package of Rs. 600 crore. Villages with destroyed mud
brick houses were to be provided houses under the Pradhan Mantri Awas Yojana (PMAY). The Ministry of
Rural Development sanctioned Rs. 1,800 crore under Mahatma Gandhi National Rural Employment
Guarantee Scheme (MGNREGA) for 2018-19 for 5.5 crore person days of work. Directions were issued to
insurance companies to hold special camps for assessments and timely release of compensation to the
affected families/beneficiaries under social security schemes, to Fasal Bima Yojana for fast clearance to
agriculturists/farmers, and to National Highway Authority of India to repair national highways damaged
due to floods on priority. Approximately Rs. 1,400 crores from millions of individuals and organizations
across India and overseas were credited into the Chief Minister’s Disaster Relief Fund (CMDRF), in addition
to contributions in kind (medical and relief supplies).

1.4 What were the Impacts of the Flood?

In September-October 2018, the GoK conducted a series of assessments to estimate the damage, loss and
needs to critical sectors and districts from the floods. A Joint Rapid Damage and Needs Assessment
(JRDNA) was conducted by GoK, supported by the ADB and the World Bank covering 12 sectors and all 14
districts in the State which were affected by the floods and landslides to varying extents. The JRDNA was
complemented by a detailed Post-Disaster Needs Assessment (PDNA), led by GoK and supported by the
United Nations. The assessments estimated that total damages and losses to be around Rs. 26,718 crore
and total recovery needs at around Rs. 31,000 crore. Infrastructure sectors like transportation, water,

25
sanitation and hygiene, power and irrigation were the most affected and have the largest recovery needs,
followed by social sectors5, productive sectors and cross cutting sectors.

Figure 2: Share of disaster effects across sectors

The losses accrued by the State were amplified owing to several factors including inadequate reservoir
storage and limited capacity for dam operation, reduced carrying capacities of surface water bodies,
unplanned development in disaster-prone areas and due to the poor quality of the built infrastructure.
The floods and landslides disproportionately affected vulnerable groups in the State including women,
the elderly, children, persons with disabilities (PWDs), Scheduled Tribes, Scheduled Castes and the fisher
folk especially in rebuilding their livelihoods in agriculture and other ancillary activities (fishing and animal
husbandry for instance) and in the Micro, Small and Medium Enterprise (MSME) sector. There have been
both immediate and long-term losses in wages and work prospects given extensive damage to livelihood
related assets. These are reflected in the aggregate economic losses reported: it is estimated that close
to 2.6% of Kerala’s gross state domestic product (GSDP) was washed away by the floods.

5
Social sectors include Housing, Land and Settlements, health and nutrition, education and child protection, cultural
heritage. Productive sectors include agriculture, fisheries and livestock.

26
 Table 4: Overview of Disaster Effects and Recovery Needs

Sector Damage Loss Total Effect Total

(D+L) Recovery
Needs

Rs. crore Rs. crore Rs. crore Rs. crore

Housing, Land and settlements 5027 1383 6410 5443

Irrigation & Water Resources 1483

Water, Sanitation and Hygiene 890 471 1361 1331

Integrated Water Resources 24

Management

Power 353

Transport 10046

Health and Nutrition 499 28 527 600

Agriculture, Fisheries and 2975 4180 7155 4498

livestock

Livelihoods 881 9477 10358 3896

Education and Child Protection 175 4 179 214

Disaster Risk Reduction 17 583 599 110

Natural Environment & 26 0.04 26 148

Biodiversity

Cultural Heritage 38 37 75 80

Other Infrastructure 2446

Gender and Social Inclusion 0.9 0 0.9 35

Local Governments 28 0 28 32

Total

Source: Kerala Floods 2018 PDNA

Note: (i) The values have been rounded so the totals may not match. (ii) Damage, loss, and total effect have
not been given for Power, Irrigation, Other Infrastructure and Transportation (Roads and Bridges)

27
 How does the ‘Rebuild Kerala Development Programme’
Differ from the Standard Recovery Approach?

2.1 Rebuilding Post-flood and Protecting Our Future

The 2018 flood disaster was unprecedented in its extent and impacts. The floods highlighted a number of
structural constraints associated with institutional capacity, policy and planning, financing, standards,
access to data and public services, that left Kerala unprepared for major natural disasters or climate
change shocks. To recover from the floods in a resilient and sustainable manner, it was felt that a
traditional approach to recovery and reconstruction would be insufficient — it was not enough that the
State merely undertake a rehabilitation and restoration programme in the aftermath of this natural
disaster. Kerala had to address the fundamental drivers of floods as well as better prepare better for
future disasters. The floods had to be taken as “a challenge and an opportunity to rebuild the State to
ensure better standards of living to all sections of the society”6. A comprehensive and well-coordinated
multi-sectoral programme is required to address this challenge in order to ensure a resilient recovery and
a sustainable development pathway for Kerala.

2.2 Structural Constraints to Disaster Risk Reduction and Resilience

Institutional and capacity: Inadequate institutional capacity limits the State’s ability to anticipate and
respond to extreme events which leads to sub-optimal and ad hoc response, from one emergency to
another. Multiple government agencies are engaged in the sectors of agriculture, water, roads and waste
management, but they often operate in a fragmented and isolated manner, instead of taking a
multisectoral and cross-institutional approach to planning, development and management of natural
resources, infrastructure and public service delivery. To encourage this holistic approach there is a need
for institutional consolidation, coordination and capacity building. An enabling institutional and policy
framework with a supporting regulatory regime and adequate enforcement is required, especially for
critical sectors like integrated management of agriculture, water resources, transportation, disaster risk
management, urban services, etc. A comprehensive assessment of the institutions, re-engineering when
required for more effective delivery through redefining of roles and responsibilities, strengthening
staffing, and capacity building would be required. Additionally, it is important to build partnerships with
the private sector on climate proofing and adaptation, green and resilient designing and value engineering
techniques to reduce overall impact on environment and ecology during recovery and rebuilding.

Policy and planning: One of the key gaps identified during the floods was inadequate urban spatial and
sectoral planning and a lack of mainstreaming of risk mitigation measures. There is little evidence of
hazard risk informed planning process in the State. Poor enforcement of master plans has led to extensive
urban sprawl and unmanaged construction in hazard prone areas. During the floods, many such
unauthorized constructions in vulnerable areas suffered severe damages. Land use regulations are
currently based on multiple divergent acts, orders and rules. These do not align into a single land
management policy and regulation for enforcement agencies to follow. This is not conducive to facilitate
systematic planning and investments, enforcement of DRR regulations, or implementation and

6
The policy statement of GoK as per Government Order G.O.(P)No.16/2018/P&EA, dated November 9, 2018.

28
compliance of DRM measures. In order to achieve resilient recovery, it is important to introduce flexibility
in planning guidelines, ensure synergies between urban master plans and district development plans,
enable multi-year infrastructure planning, etc. The Government has an institutional and legal framework
in place to manage disaster response, however it is imperative to additionally mainstream and integrate
DRM into various sector development strategies.

Financing: Currently, disaster risk financing is characterized mostly by ex-post mechanisms (e.g. budget
reallocations) rather than ex ante (e.g. insurance of public assets, market-based risk transfer, etc.). The
State draws finances for DRM activities primarily from its own budget, resources provided by the GoI,
external financing institutions and voluntary contributions. Kerala needs to explore sustainable financing
options for DRM and DRR, for example, catastrophe insurance, insurance linked-safety net programs, and
other innovative insurance products to reduce the fiscal burden of disasters on State resources. While
most better performing states in terms of infrastructure7 have Capex to GSDP ratio more than five, Kerala
managed only 1.79. In critical infrastructure sectors, there is a need to explore innovative financing
structures and alternate revenue models for raising funds to support resilience.

Building Standards: Widespread flooding in urban and semi-urban areas of Kerala has reaffirmed the
absence of risk-informed urban planning, non-compliance to building design standards, and non-inclusion
of resilient features in urban infrastructure. Aging and poorly maintained infrastructure accentuates this
risk. Inadequate investments in building resilient infrastructure and the poor operation and maintenance
(O&M) of assets also contributed to losses across sectors during extreme events. There is a need to
strengthen technical design guidelines, enforcement, service standards and codes for infrastructure and
buildings to incorporate climate and disaster risks.

Data: An inadequate hydrological database, poor information systems and tools prevent forecasting, early
warning and rapid response. There is limited availability of data due to an inadequate hydro-met system,
a lack of sampling stations, low density of gauges, broken equipment, etc. This leads to poor quality data
that does not support sound decision making. Additionally, limited accessibility of data does not allow
agencies to readily access information for planning and management. There is a lack of detailed systematic
information on hazards, and sector-specific asset health that is required for scientific analysis to properly
manage water resources, construct roads, and undertake various urban services and planning measures.

Infrastructure and service delivery quality: Kerala has made great progress in ensuring that services such
as education, health or connectivity reach its citizens. This progress has provided a strong foundation to
the State’s development. However, as the floods highlighted, Kerala’s challenges today are increasingly
about the quality and resilience of infrastructure and public services. Thus, there is a need to maximize
the efficiency of scarce public investments in the development of infrastructure and delivery of services.
This requires a paradigm shift in public investment and expenditure management systems and approach.

7
As per white paper on State Finance, June 2016

29
2.3 A Paradigm Shift through Rebuild Kerala Development Programme
The Rebuild Kerala Development Programme (RKDP) is a thus a direct response to the 2018 floods,
designed to serve as a resilient recovery programme which aims to build resilience during recovery and
promotes resilience in regular development8. The Rebuild Kerala Initiative (RKI) is the institutional
modality or framework for the entire rebuilding process andUacts as a vehicle to operationalize the RKDP
by coordinating, facilitating and driving policy shifts, institutional renewal and investment on-the-ground
required for a resilient rebuilding of Kerala. Through establishing RKI, the Government aims to put in place
a streamlined and transparent process of decision making for comprehensive and resilient recovery and
rebuilding from the 2018 floods. The RKI aims to catalyse the State’s transformational shift towards risk-
informed sustainable development9 by putting in place policies, institutions and systems for enhancing
resilience to disasters and impacts of climate change, by ensuring higher standards of infrastructure,
assets and livelihoods for resilience, and by fostering equitable, inclusive and participatory reconstruction
for building back better.

The RKDP response aims to address the underlying multi-sectoral drivers and challenges highlighted by
the 2018, as outlined above, through a multi-sectoral response. Without smart and resilient recovery,
reconstruction, and long-term resilience building efforts, the recent floods and landslides may undermine
the investments and progress that successive Governments have made in reducing poverty and promoting
prosperity.

2.4 Purpose of ‘Rebuild Kerala Initiative’

“Rebuild Kerala Initiative is guided by GoK’s vision for recovery and move towards Nava Keralam. RKI
envisions a green and resilient Kerala where higher and ecologically safe standards of infrastructure,
improved conditions of living and new major development projects ensure that people and assets are able
to withstand the onslaught of future disasters. “ – G.O.(P)No.16/2018/P&EA

This vision sets the stage for resilient recovery in Kerala followed by a streamlined process of decision
making for identifying the priorities, investment needs, and sources of funding.

8
“Resilient recovery”
9
Government Order; G.O.(P)No.16/2018P&EA dated November 11, 2018

30
 Figure 3: Position and purpose of Rebuild Kerala Initiative

SECTOR STRATEGIES, POLICIES AND PROGRAMMES

Objective of RKDP
“To enable Kerala’s resilient recovery and catalyse transformational shift towards risk-informed socio-
economic development through supporting sustainable communities, institutions, livelihoods and putting
in place major infrastructure. “– G.O.(P)No.16/2018/P&EA

The RKDP aims to rebuild Kerala in a speedy and effective manner. The goal is to rebuild Kerala in a way
that ensures (i) higher standards of infrastructure, assets and livelihoods for resilience against future
disasters and (ii) build individual, community and institutional resilience to natural hazards while fostering
equitable, inclusive and participatory reconstruction that builds back better. Ecological safeguards and
standards would be built into the structures that will be constructed to equip new and restored assets to
better withstand the onslaught of floods and other natural hazards in the future. The RKDPP also
emphasizes the necessity to improve sectoral mainstreaming of disaster risk reduction measures and
strengthen disaster risk management capabilities across the state machinery. The aim is to rebuild a
resilient Kerala, wherein state institutions, infrastructure, citizens and their livelihoods are safely
protected from extreme weather events.

31
Mandate
The RKI will act as the coordinating entity for Kerala’s reconstruction efforts to bring about a perceptible
change in the lives and livelihoods of its citizens by adopting higher standards of infrastructure for
recovery and reconstruction, and by building ecological and technical safeguards so that the restructured
assets could better withstand floods in the future.10 In this regard, the RKI’s primary mandate is to
develop, coordinate and implement the RKDP.

Key responsibilities of RKI would include:

1. Developing and coordinating the implementation of the RKDP;
2. Facilitating transformative policy and institutional shifts and critical programme investments that
address the fundamental drivers of floods and other natural disaster and better prepare Kerala for
future disasters and climate change risks;
3. Mobilizing public, private and community-based resources for the implementation of the RKDP;
4. Supporting Government departments and agencies in effecting agreed policy and institutional
changes, project preparation and implementation and, in select cases, directly undertake activities
and projects that are critical for recovery and resilience;
5. Entering into and enabling partnerships with nongovernmental and civil society entities, development
partners, financing partners, the private sector, academia and thinktanks for the implementation of
the RKDP;
6. Ensuring an inclusive, participatory and consultative process of implementation of the RKDP;
7. Undertaking M&E and conducting performance review of RKDP; and
8. Reporting to the High-level Empowered Committee (HLEC), the Advisory Council, the Chief Minister
and the Council of Ministers on all matters pertaining to the RKDP, including Programme progress and
results on a regular basis.

2.5 A Unique Approach to Rebuilding

The RKDP through RKI will adopt a multi-hazard, multi-sectoral programmatic approach, recognizing the
interdependencies between sectors and aim to enhance institutional and regulatory capacity for resilient
recovery. This holistic approach will allow the programme to maximize the programme’s goals, as it will
be able to incrementally take advantage of the gains in one sector to support the opportunity of progress
in other sectors. In addition to the ability to capitalize on potential mutual gain between sectoral
interventions, such a programmatic approach will respond more holistically, minimize redundancies and
increase opportunities to ingrain resilience across the system.

Differentiated, tiered and multi-sectoral: Building resilience and reducing vulnerabilities to disaster in
Kerala requires a multi-pronged approach. The RKDP through RKI is anchored in a common but
differentiated approach that recognizes common vulnerabilities and threats to communities and assets
from disasters and climate change but also takes into account different levels of vulnerability,

10
Government Order; G.O.(P)No.16/2018P&EA dated November 11, 2018

32
development, coping capacities across the various sectors and districts. The needs for housing
reconstruction in the low-lying lands of Kuttanad area, for example, are very different from those of the
high. There must be region specific menu of options including, but not limited to, norms, planning, design,
implementation arrangements and enabling mechanisms. The multi-pronged approach would thus
encompass (i) tiered engagement – state, district, and local level; (ii) multi-sectoral engagement – policy
and institutional reforms, resilient strategies, capacity building, across the various sectors; and (iii)
horizontal and vertical investments – synchronized resilience mainstreaming across departments and
agencies and at State and local levels.

Systems resilience approach: Rather than sector approach, a systems approach is key to an integrated
resilient recovery programme. Each sector depends on other sectors for increased resilience, and while
interdependencies can help to build resilience, these dependencies give rise to vulnerabilities. If one
sector is resilient to a certain degree whilst being dependent on a sector that is less resilient, then the
systems put in place for resilience are wasted. For e.g. flood defence failures could lead to flooding of
power stations, resulting in power cuts and disruption of telecommunications. There is currently a lack of
coordination of the various adaptation investments, research and other activities, both within and across
sectors. There should be means to share information and best practices across sectors to enable a systems
approach to resilience. Local and regional resilience platforms are needed.

Transformational shift: To achieve resilient recovery and catalyse a resilient development pathway, there
is a need for a transformational shift towards policies and institutions that enable climate resilient
recovery and development. The resilience deficit in Kerala that contributed to a hazard turning into a
disaster is anchored in lack of adequate planning and inter-sectoral coordination, increased land
vulnerability due to urbanization, unplanned development along rivers, inadequate reservoir storage and
dam management, poorly maintained infrastructure, inadequate early warning systems and protocols,
high density of coastal population, degrading environment combined with limited consideration of
disaster risk within social and economic sectors and limited institutional capacity. There is need to adopt
a suite of non-structural and structural investments to build resilience to climate change. Policy reforms
are expected to lead to transformations towards climate-smart planning, skills, institutional capacity
building and investments. To achieve these reforms, an incentive structure must be created providing
cutting-edge information, expertise, and incremental financing to support climate and disaster resilient
investments.

Programmatic approach: The RKI will help the Government develop a framework that takes a
programmatic approach to identify priority sectors that are critical for rebuilding a resilient Kerala. Such
a framework would enable the use of holistic recovery management. In it, the activities of government
agencies, communities, and nongovernmental entities complement one another under a government-led
framework. The RKI programme translates the GoK’s vision for recovery, Nava Keralam, into a strategy;
prioritizing actions; fine-tuning planning; and providing guidance on financing, implementing, and
monitoring the recovery.

33
 Figure 4: Programmatic Approach of Rebuild Kerala Initiative

RKI
Resilient, Risk-
Informed
Recovery

Pooled financing: The resources would be pooled through several windows of funding: own resource
mobilization including budgetary reallocations, loans and grants from multilateral and bilateral agencies,
masala and diaspora bonds, contributions from the private sector and citizens, new sources of
philanthropy, and reallocations from ongoing programs and projects, among others. The resources would
be pooled for the greatest degree of financial sustainability.

Simplified procurement – Within Government rules, expedited models of procurement procedures would
be adopted, where required, to provide a robust mechanism for the timely purchase of goods and
services. RKI’s mandate would include invoking and promoting use of simplified measures.

Risk management framework: The RKDP is designed with a risk management approach which ensures
that the system can be updated over time as conditions change. This includes a monitoring programme
to evaluate system performance over time and flexibility to make needed changes. A climate-change risk
management programme will be incorporated into asset management programmes of select sectors. An

34
asset management system is a “strategic and systematic process of operating, maintaining, upgrading,
and expanding physical asset effectively throughout their life cycle11”. The programme endeavours to
creatively aligns incentives, including the sharing of risks and rewards of new and robust design
approaches to maximize life-cycle cost effectiveness.

2.6 Key Principles of Resilience

A resilient rebuilding and development pathway, as envisaged by RKDP, would require applying the
following key principles of resilience, especially in the affected infrastructure sectors, as per international
best practices:12

 Flexible, adaptive engineering. While modelling and vulnerability assessment can provide some
insights, it is not possible to predict every potential condition for future infrastructure and systems.
Hence, anticipating a range of possible future conditions, designs should be flexible. Flexible design
includes the ability to change size and/or functions in the future. Flexible designs would also include
redundant systems to protect against failures.13
 Stronger standards for design and implementation. Engineering standards will need to be revised to
account for the hazard risks and future climatic conditions. The development of engineering standards
can follow a risk management approach and balance the potential consequences of failure with the
cost of risk reduction measures.
 Apply risk management methods and tools: Risk informed planning should incorporate risk
management methods and tools to help identify, assess and prioritize options to reduce vulnerability
to potential environmental, social and economic implications of climate change.
 Adopt integrated approaches: Adaptation should be incorporated into core policies, planning,
practices and programs whenever possible.
 Prioritize the most vulnerable: Adaptation plans should prioritize helping people, places and
infrastructure that are most vulnerable to climate impacts and be designed and implemented with
meaningful involvement from all parts of society.
 Build strong partnerships: Coordination across multiple sectors and scales is critical and should build
on the existing efforts and knowledge of a wide range of public and private stakeholders.
 Apply ecosystem-based approaches: Resilient recovery and development should, where relevant,
take into account strategies to increase ecosystem resilience and protect critical ecosystem services,
thereby minimizing vulnerability of human and natural systems to climate change.
 Maximize mutual benefits: Where possible, use strategies that complement or directly support other
related climate or environmental initiatives, such an effort to improve disaster preparedness,
promote sustainable resource management and reduce greenhouse gas emissions, including the
development of cost‐effective technologies.

11
Federal Highway Administration (FHWA), (2012). Transportation Asset Management Guide: A Focus on
Implementation. http://www.fhwa.dot.gov/asset/hif10023.pdf.
12
White House (2011). “Federal Actions for a Climate Resilient Nation; Progress Report of the Interagency Climate
Change Adaptation Task Force”
13
De Neufville, Richard, and Stefan Scholtes, (2011). Flexibility in engineering design. The MIT Press, Cambridge, MA.

35
Rebuild Kerala Development Programme aims to achieve resilient recovery and development in critical
sectors like roads, water resources management, with differentiated vulnerabilities in the hinterland and
coastal areas. The high intensity rainfall in 2018, ranging from 50 – 500-year return period shows the wide
range of intense precipitation sectors may need to be prepared for.

2.7 ‘Rebuild Kerala Initiative’ Core Guiding Principles14

Planning and implementing the various projects under RKI would be guided by eight core principles - (i)
Fast, Efficient, and Inclusive (ii) improving resilience (iii) build-back-better philosophy (iv) Innovative and
Modern Technologies (v) Fair and Equitable Rehabilitation Practices (vi) Capacity building (vii) Building
Asset Management Frameworks (viii) Simplification of processes and procedures
Fast, efficient and inclusive, covering vulnerable populations: Reconstruction needs to be strong, so that
assets and livelihoods become less vulnerable to future shocks; efficient, so that both men and women
can get back to their normal life fast; and inclusive, so that all citizens, including members of
disadvantaged communities such as women, the elderly, PWDs, the Scheduled Castes and Scheduled
Tribes, migrant workers and fisher folk, participate fully in the efforts and are not left behind in any way.
Women bear a disproportionate burden of losses in natural disasters. Often, they are at the forefront of
a disaster looking after the elderly, children and animals and assisting in rescue efforts. This risk is
aggravated in Kerala because many households are headed by women, with their husbands working as
migrants in foreign shores. To integrate women’s needs and their knowledge as resilience champions, it
will be ensured that the Resilient Recovery Plan being developed by the GoK is gender informed and
specific needs of women for shelter, safety, sanitation etc. in times of disasters are addressed in these
plans. The last mile connectivity of information about disasters for the women residing in hard to reach
areas will also be ensured. The sectoral engagements will also focus on integrating gender concerns (e.g.
ensuring that there is last mile delivery of drinking water supply, so women are not burdened with fetching
water; collecting gender disaggregated data for all programme beneficiaries and so on). To ensure that
women’s interests are effectively addressed by the LSGIs, capacity building of the office bearers in the
Panchayats, including women and men will also be taken up in RKI.
In addition to women, the RKI will also focus on addressing the concerns of other vulnerable groups such
as the elderly, people with disabilities (PWDs), Scheduled Castes (SCs), Scheduled Tribes (STs), the
fisherfolk, and migrants who come from other states. The elderly and PWDs are at greater risk of being
affected by natural disasters because early warning systems are not always able to reach them on time.
Similarly, while there were a number of State Government schemes to ensure relief to migrant workers
during the 2018 floods, several of them were unable to access such schemes because of lack of access to
information, loss of identity cards in the floods, and lack of social support. The concerns of these groups
will have to be addressed in recovery plans going forward. The fisherfolk, the ‘heroes’ in the 2018 rescue
efforts, face the maximum risk to natural disasters as they live in hazardous conditions in coastal areas.
They are highly vulnerable to losing their assets such as boats, and their livelihood with a depleting fish
stock when aquaculture farms overflow. Similarly, the 2018 floods have been particularly disastrous for
the ST families living in highland areas of Wayanad and Idduki where landslides caused extensive damage
to plantations and paddy fields. Through an inclusive process, tribal communities can be integral to
resilience planning in vulnerable areas given their deep relationship with forests and natural resources.

14
From the GO

36
Improving resilience: RKI will focus on building assets that are more resilient to natural calamities like
floods. Approaches in this direction will comprise of elevating flood-prone road sections, drainage
improvement, slope stabilization, landslide protection, and bio-engineering techniques. Incorporating
cost-effective disaster-resilient principles will improve the long-term sustainability of the reconstructed
critical public infrastructure. The efforts under RKI for rehabilitation will be based upon structural
assessments, geological and hydrological surveys, and a range of improved technical measures.
Modifications to current designs and structures will be encouraged if these will lead to enhanced
resilience and durability. Efforts will be made to use methodologies based on organic architecture to
foster harmony between the human habitation being settled and the natural world.
Build-back-better philosophy: The RKDP will adopt a ‘build-back-better’ approach, backed by sound
engineering designs, adequate drainage, and greening approaches to enhance resilience. Build-back-
better principles will, in general, include improved designs, sizing, siting, and orientation, with due
recognition of affordability and technical viability constraints. Where relevant, poor existing geometrics
of roads and canals must be improved, and new / additional cross-drainage structures as well as
arrangements for surface drainage and wider waterways at selected vulnerable locations must be
provided.
Innovative and modern technologies: The RKDP should be used as an opportunity to adopt or switch to
practices that are more efficient, less resource intensive and more environment friendly. For instance,
road rehabilitation should choose between a variety of pavement designs. RKI will have to weigh between
several available options in a range of alternative surfacing and paving technologies based upon
availability of local resources, geography (flood and landslide risk, steep terrain) and traffic volumes. Some
of these options may have a higher initial investment cost, but over the whole life cycle of the road, they
will prove more durable and will need less maintenance and repair. Resilience will be potentially improved
through innovative technologies, which will extend road durability and reduce life cycle costs.
Adoption of new technologies shall be a key driver of the process and this will ensure that the new projects
undertaken are state-of-the-art. The implementation of smart technologies in utilities, early warning
systems, setting up predictive tools for disaster management, improved technology solutions for relief
work, designing evacuation plans etc. will improve the overall responsiveness of the State to tackle any
such disaster in future and improve the efficiency of delivery of civic services during such catastrophes.
Specific focus should be given for building vast depositories of data both local, regional relating to
weather, rainwater analysis, soil data for designing robust and sustainable systems for disaster
management. Use of data analytics in systems planning and implementation and induction of modern
technologies (e.g. IoT) will be a common thread in the establishing improved disaster management and
surveillance mechanisms.
Fair and equitable rehabilitation practices: Resettlement and Rehabilitation plans should be based on the
best and fair practices. In each case where resettlement/rehabilitation must be done, a Resettlement &
Rehabilitation Plan must be drawn up for the Project Affected People (PAP) and the Project Affected
Household (PAH) after assessing the category of impacts together with socioeconomic conditions on the
PAP and PAH, and host communities, estimated cost of resettlement and draw up a time-bound action
plan for implementation.
Capacity building: Durability and resilience can be increased only if technical and operational capacity of
implementing agencies is adequate. Under RKI, planned programmes will be undertaken to enhance
capacity of institutions and agencies under Government through training and support of technical
laboratories and quality control, based on adoption of international good practice.

37
Building asset maintenance frameworks: Ensuring the sustainability of public investment through sound
public asset maintenance practice is challenging across countries. Road maintenance is a common
challenge for most governments because of limited resources. The possibility of creating local
responsibility for asset maintenance, by adopting a community-based approach to routine maintenance
of public assets which has been successfully implemented in other countries, will be explored.
Simplification of processes and procedures: A rebuilding exercise of this magnitude requires nimbleness
in decision making. At the same checks and balances are to be in place to ensure transparency and
prudence in spending. The clearances and permissions that are required for the project may be given at
the appropriate levels as explained in the institutional arrangements discussed below in this proposal.
Improved practices may be incorporated into the procurement guidelines in RKI. Reconstruction of
infrastructure systems, consequent to disasters and post war like situations needs strategies different
from conventional public work execution methodologies. In such circumstances, it may be difficult to wait
for the completion of entire planning and design for initiating the actual construction activities considering
the limited time frame available for completion of such projects. Mode of procurement and contracting
systems are also to be suitably modified to meet the specific requirements like faster construction, least
disturbance to the damaged environment, and efficient utilisation of natural resources, while ensuring
transparency and efficiency.
Integrated Concurrent Engineering (ICE) and Execution methodologies as being followed by EPC
organizations are among various options to meet the above objective. The agencies awarded with such
works shall be permitted to adopt techniques and methodologies in planning and design based on
acceptable national/international standards /specifications suited to Kerala conditions. They may choose
appropriate designs, technologies and practices from basket of acceptable options (which may be short
listed with the help of experts in related fields).
Eventually as the RKI progresses, good models will evolve and be a legacy for improving the process of
governance specially for infrastructure construction and disaster management. Processes and Procedures
which have been tried out successfully under RKI can be subsequently incorporated into Government
practices, rules and procedures.

2.8 Structure, Framework, and Process

In addition to its core guiding principles and approaches, the inclusion of projects under RKDP would done
after considering the ideas, suggestions and proposals from the widest possible spectrum of stakeholders.
Stakeholders will be diverse in composition, capacity and responsiveness – and may range from persons
who have a promising idea to those who might even have fully or partially developed project proposals.
So also, such ideas or proposals can emanate from individuals to institutions. The success of RKDP will
substantially hinge on how well it can accommodate and reflect the true aspirations of all stakeholders in
its design. To achieve the above objective, the following process of collecting and developing ideas are
envisaged under RKI.

38
 Figure 5: Process for idea generation under Rebuild Kerala Initiative

Development seminars: Development Seminars with the support of print and electronic media groups at
regional and sub-regional levels will be organized. Members of Parliament and Members of Legislative
Assemblies of the affected districts would play a significant role in fostering meaningful discussions for
generating ideas. The feasibility of translating ideas that emerge from these seminars into projects will be
thoroughly examined by the RKI Secretariat with the help of experts in the field. These will be then worked
on to develop full-fledged projects. Where an idea looks promising but cannot be converted into a project
directly, a feasibility study may have to first be undertaken to establish the workability of the idea itself.
Idea generation: Focused hackathons conducted on specific themes and on possible rebuild ideas will be
held. This approach would more specifically focus on tapping the suggestions from the non-resident
population of the State.
Idea exchanges: Colleges and schools will be encouraged to work on college/school level projects for their
ideas on rebuilding the locality or region in which the institution is located.
Identification by LSGs: The District Panchayats and Municipal Corporations will formulate two or three
major infrastructure investments addressing regional issues for inclusion in RKI viz. those whose scope
extends beyond one or very few LSGs.
Identification by Government Department: Departments like PWD, Irrigation, Water Authority will be
invited to submit critical proposals that go beyond the scope of their annual budget operations but which
in their opinion will have significant beneficial impact for the State in the future in terms of improving
resilience of regions likely to be affected by floods.

39
Major infrastructure projects: Primarily driven by a project proponent (could be a sponsor, company,
regional groups etc.) these would be iconic projects or large projects with well-marked boundaries that
are viable on its own revenue streams or could be made economically viable through a gap funding by
Government which is not excessive in relation to the total project size.
Online platforms: Necessary online platforms for the purpose viz. conducting hackathons, hosting idea
exchange platform, uploading project proposals, processing and issuing sanctions will be developed and
commissioned without delay.
Stakeholder acceptance: A system of e-polling will be introduced to ascertain user acceptance of tested
solutions as part of this online platform. All the project profiles of RKI will be uploaded in the online portal
for a week to a fortnight for gathering views of stakeholders, prior to placing before the Advisory Council
and the Council of Ministers for approval. Stakeholders’ acceptance of the projects listed in the portal will
be elicited to give the selection more validity and robustness.

2.9 Regions and Sectors Addressed

The RKI has a comprehensive scope of engagement, including key sectors affected by the August 2018
floods, and assessed in the PDNA viz. Housing, Land, and Settlements, Roads, other public transport, water
supply, water resources, sanitation, sewerage, urban waste, agriculture and fisheries, health and
nutrition, education, cultural heritage, and cross cutting sectors - disaster risk management, Environment,
livelihoods, gender equality and social inclusion, local governance.

Geographical scope: all 14 districts (with special emphasis on the worst affected - Alappuzha, Ernakulam,
Idukki, Kottayam, Pathanamthitha, Thrissur and Wayanad.
Sectoral Scope: Cross-cutting sectors – Disaster Risk Management, Climate Change, Environment,
Governance. Critical sectors: Water Supply and Sanitation, Integrated Water Resource Management,
Urban, Roads and bridges, other Transportation, Forestry, Agriculture, Livelihood, Animal Husbandry and
Dairy, Fisheries and Land.
Temporal scope: RKI will be a multi-sector programme involving several government departments and
agencies over a period of five years. In the medium-term, interventions aim at rebuilding shelter,
infrastructure, and livelihoods; and in the long-term interventions work toward building government
capacities and reducing the risk of future disasters. The majority of medium-term recovery and
reconstruction measures are expected to be completed within two to three years. Given the multi-agency,
inter-disciplinary nature of the reforms, long-term interventions could take more than five years. For
further detail on the short, medium, and long-term interventions please refer to the sector specific
concept notes under Chapter 3 ‘Cross-cutting Foundational Elements’ and Chapter 4 ‘Critical Sector
Priorities’.

40
 Cross-cutting Foundational Elements under RKDP

The unprecedented flood event highlighted some challenges that are cross-sectoral in nature. These
common priorities are ingrained across all interventions of the RKDP and especially within the various key
sectors in Chapter 4. Therefore, they take on the role of foundational elements, requiring special
attention. Additionally, interventions to improve the elements discussed in this chapter all require cross-
sectoral coordination and collaboration across central, regional and local levels of the Government;
another reason why they are treated differently from the key sectors in the following Chapter 4. Besides
comprehensively responding to the driver of the floods, this multi-sectoral nature affords the great ability
to maximize the programme’s goals, through capitalizing on potential mutual gain between sectoral
interventions. The cross-cutting overarching themes in RKDP discussed in this chapter are Disaster Risk
Management and Resilience, Environment and Climate Change, Strengthening Institutional Efficiency and
Resilience and Open Data.

3.1 Disaster Risk Management and Resilience

3.1.1 Introduction
Following the devastating floods and landslides in August 2018, the PDNA was carried out by the
Government of Kerala jointly with United Nations, World Bank, Asian Development Bank and European
Union. The assessment team held consultations with the relevant departments, district administrations,
panchayats and various other stakeholders. The assessment covers a review of the existing disaster
management system in the State covering all phases of the disaster management continuum—
preparedness, response, relief, mitigation, and prevention. The vision set out for Nava Keralam is to
ensure zero mortality due to disasters with minimum economic losses and disruption of services. To
achieve it, the principles of risk-informed programming will be embedded across all the sector recovery
plans with additional investments for disaster preparedness and response. The DRR sector accounted for
Rs. 16.5 crore in damages and Rs. 582.52 crore in losses, that is, a net value of Rs. 599 crore due to floods
of 2018. The estimated recovery cost is Rs. 109.7 crore15.

3.1.2 Immediate Recovery Efforts

An amount of Rs. 1,501 crore has been allocated under various heads, out of which Rs. 1,007 crore has
been spent from the State Disaster Response Fund (SDRF). The State Disaster Management Authority
(SDMA) has acquired the technology of ‘Location-Based Messaging System’ to disseminate information
on localized tragedy prediction. Measures to renew the state and district disaster management programs
have already started. The hotspots that are vulnerable to disaster and prone to landslides, but had
residential construction before the flood, are mapped with the help of Geological Survey of India to
prevent housing development in those regions. In order to provide information for future reference, the
government has ordered all government and public sector enterprises, affected by floods, to mark the
maximum height of the water level reached in the recent flood. The Centre for Water Resources
Development and Management (CWRDM), Kerala Forest Research Institute, MG University and Kerala

15
Kerala 2018 Floods PDNA

41
State Remote Sensing and Environment Centre have been entrusted to provide accurate map of flood
affected areas including information on height of flood water. A mobile app was developed to ensure
people participation in the process. Information collected in this regard has been given to the Central
Water Commission to produce and accurate map.

3.1.3 Hazard Profile of Kerala

Kerala is highly vulnerable to multiple natural and anthropogenic hazards and a changing climate, given
its mountainous topography and geo-hydrological features. Communities regularly face low-severity but
high-frequency disasters such as floods, rains, landslides, heat wave, lightning and thunderstorms. More
broadly, the State is prone to cyclones, storm surge, coastal erosion, tsunami, drought, soil piping and
earthquake. Kerala is also one of the most densely populated Indian states (860 persons per square
kilometer) which makes it even more vulnerable to damages and losses because of disasters. Floods are
the most common of natural hazards that affects the State. As per the State Disaster Management Plan
2016 of Kerala, 5642.68 km2 or 14.52% of the total area of the State is prone to floods. In Alappuzha
district more than 50 % of area is identified as flood prone.16 The State lies in seismic zone III which
corresponds to Moderate Damage Risk Zone (MSK VII). The State falls under Moderate Damage Risk Zone
for Wind and Cyclone (Vb=39 m/s). As per IMD data for the period 1877-2005, the State witnessed six
cyclonic storms and five severe cyclonic storms. The State also witnesses high incidence of lightning,
especially in the months of April, May, October and November. Lightning strikes cause heavy loss of lives
in the State.
Landslides are a major hazard along the Western Ghats in Wayanad, Kozhikode, Idukki and Kottayam
districts (as seen in the weather led disaster that occurred in 2018). The western flank of the Western
Ghats covering the eastern part of Kerala is one of the major landslide prone areas of the country. 1500
sq.km. in the Western Ghats is vulnerable and every year with the onset of monsoon, landslides are
reported. The mountain regions experience several landslides during the monsoon season (Kuriakose,
2010) leading to road collapse, silting of river beds and creating heavy damages on public and private
assets. The coastline is prone to erosion, monsoon storm surges and sea level rise. Land subsidence due
to tunnel erosion or soil piping is a slow hazard that has recently been affecting hilly areas.
Kerala experienced 66 drought years between 1881 and 2000. More than 50 % of Kerala’s land area is
susceptible to moderately-to-severe drought. After the drought years of 2002-2004, 2010, and 2012,
Kerala State was officially mapped as mild to moderately arid by the Indian Meteorological Department
(IMD). In 2017, the IMD stated that the year brought the worst drought in 115 years. Increasing incidence
of drought is mainly due to weather anomalies, change in land use, traditional practices and lifestyle of
people. Other natural hazards faced by the states include forest fires, swell waves and tsunami. In 2019,
heat waves were declared as a state specific disaster in the State.

3.1.4 Key Drivers of Kerala’s Disaster Vulnerability

Multi-sectoral drivers
The impact of heavy rainfall and associated floods in August 2018 was exacerbated by a number of factors.
These include changes in land use and cover, antecedent hydrologic conditions, reservoir storage and
operations, encroachment of flood plains, poor agriculture practices adversely impacting downstream

16
Kerala State Disaster Management Plan

42
riverine ecosystems, shrinkage of carrying capacity of lakes and rivers, inadequate early warning and
protocols, lower community preparedness, partial activation of disaster response SOPs etc.17.

In addition to the direct factors, there were several underlying multi-sector issues that contributed to the
heavy impact of floods and have exacerbated the vulnerability of state to disasters. These include
unsustainable and inadequate management of natural resources, climate change. limited/
restricted/restrained dissemination of disaster risk information, lack of awareness of disaster risks,
inadequate capacity to deal with high intensity disasters, degrading environment due to extensive
exploitation of the natural resources and deforestation, and slow roll out of community-based disaster
risk management (DRM) activities. Some of the key factors contributing to the vulnerability to disasters
are:

1. Deteriorating infrastructure and encroachments: Deteriorating, aging and poorly maintained

infrastructure including irrigation channels, minor major and irrigation dams, eroding river
embankments, roads, bridges, have accentuated the disaster risks. Encroachments into water bodies
and sand mining from rivers, water channels and canals, leading to narrowing carriage capacity of
these water channels, poor or nil solid waste management and sanitation disposal /treatment
facilities have also contributed to the State’s increasing vulnerability to natural hazards.
2. Poor land use planning: Current land use pattern and practices in the State have also contributed to
the increase in disaster risk. Changes in land use and cover also affected the hydrological conditions,
which, in turn can affect flood peaks and inundation. On the policy side, land use regulations are
spread across multiple, incongruent legislations, orders and rules. Lack of streamlined and singular
land management Act/policy/regulation and weak enforcement has led to an overlap of business and
habitation zones and establishment of associated public infrastructure. This is further compounded
by high population density of 860 people/km2 (2011 Census), narrow, dense and intrinsic road
network, dense coastal populations and general higher standard of living of the public as compared
to the rest of the country.
3. Unplanned urbanisation: The widespread flooding in urban and semi-urban areas of Kerala has
reaffirmed absence of risk-informed urban planning, non-compliance to design standards, and non-
incorporation of resilient features in urban infrastructure. Rapid urbanization influenced habitations
into uncontrolled expansion on both banks of the rivers/water bodies thereby encroaching into water
channels/bodies and constricting the floodplains. Inadequate storm water drainage and silting of
minor storage ponds and flood plains in urban and urban sprawl areas have increased flood risks. Only
1/3rd of Urban Local Bodies (ULB) have approved master plans and there is very little evidence of
hazard risk informed planning process in the State.
4. Climate change: During June 1st to August 18, 2018 the State received cumulative rainfall that was
42% in excess of normal average rainfall. Extreme precipitation and runoff conditions that caused the
2018 flooding were unprecedented. However, despite the significant warming observed between
1951 - 2017, the mean and extreme precipitation and total runoff have not increased and hence

17
Kerala 2018 Floods PDNA

43
 attributing 2018 floods in Kerala to climate change can be difficult18. The 2018 floods are more likely
to be driven by anomalous atmospheric conditions due to climate variability than anthropogenic
climate warming. The frequency of precipitation extremes is projected to rise more prominently in
southern and central India in the mid and end of the 21st century under the representative
concentration pathway (RCP) 8.5. 19 (Mukherjee et al., 2018). Extreme rainfall at 1-15 days duration in
August 2018 in the catchments upstream 15 of the three major reservoirs (Idukki, Kakki, and Periyar)
had the return period of more than 500 years. In January 2019, the State, for first time witnessed sub-
zero temperatures in the hilly areas of Idukki, Munnar and Wayanad, for over 4 days leading to frost
and formation of snow in many areas. The State has also had its share of droughts with critical
droughts in the years of 2013, and winters of 2017. Lack of adaptive capacity of the State to floods,
droughts, and mudflows, that are expected to increase in both frequency and severity because of
climate change, could worsen their impact. Another impact being witnessed is progressive coastal
erosion affecting nearly 63% of the State’s 580 km coastline20.
5. Other factors: Some of the other factors that have increased the vulnerability of the population in the
State to disasters include - coastal erosion, land subsidence due to tunnel erosion or soil piping and
unsustainable exploitation of natural resources These factors, combined with limited consideration of
disaster risk within social and economic sectors, partly because of competing demands on limited
financial resources and inadequate capacity, underpin the high disaster risk levels in Kerala.

Challenges specific to the DRM sector

The increasing vulnerabilities due to a variety of factors such as rapid urbanization, environmental
degradation, growing population and climate change compounded the disaster risks in the State and this
mandated a paradigm shift from a relief centric approach to a proactive and comprehensive mindset
towards disaster management covering all aspects from prevention, mitigation, preparedness to response
and recovery21.

1. Response-oriented disaster risk management: The existing disaster management system in the State
is largely response-centric. The disaster management plans prepared at the state and district levels
provide a lot of information on hazards but are weak in vulnerability and capacity assessment. The
plans are also weak on mitigation and do not provide strategies for mainstreaming disaster risk
reduction (DRR) across key sectors. Although the SDMP has mandated departments to allocate 10%
of their budget for integrating DRR in their sectors, no such allocation has happened in practice.
2. Inadequate risk information mechanisms: The collection and availability of disaster risk information,
including hydro-meteorological data, is limited and scattered across multiple agencies, which, is often
not shared between agencies. This reduces the scope of terrain, weather and hydrology and disaster
risk informed planning. For example, there are 422 meteorological stations managed by 16 agencies

18
Mishra V, Shah H: Hydro climatological Perspective of the Kerala Flood 2018, Journal of Geological Society of
India, Volume 92, Issue 5, 511-650, doi:10.1007/s12594-0018-1079-3
19
Mukherjee, S., Aadhar, S., Stone, D. and Mishra, V.: Increase in extreme precipitation events under anthropogenic
warming
in India, Weather Climate. Extreme., 20(July 2017), 45–53, doi: 10.1016/j.wace.2018.03.005, 2018.
20
Shoreline Change Assessment of Kerala, National Centre for Sustainable Coastal Management, Kerala, June 2018
21
Kerala State Disaster Management Plan Profile, KSDMA

44
 comprising of various research institutes, weather monitoring institutions both government and
private, commercial entities, and state line departments. River morphological studies and related data
is now out dated, and custodians of this data are reluctant to share the same. Data from 143 river
gauges, 422 meteorological, and 7 observatory stations are not even automated. Kerala has failed to
ensemble these data into a single platform to routinely monitor and provide accurate forecasts and
flood warnings. The underlying issue is the prevalent protocol of information sharing is subjected to
receipt of forecast data from a single source – Indian Meteorological Department (IMD), leading to
lower scale of accuracies, and shorter lead time to undertake emergency response measures.
Inadequate regulatory arrangements with non-IMD weather data sources prevent the State from
utilizing multi-model super-ensemble forecasting, which can significantly reduce errors in model
output and provide more accurate forecasting.

Further, data captured by different agencies are not systematically analysed and shared with the line
departments to factor the same into planning and investment decisions. The KSDMA, in the KSDMP
profile stipulates plans to add medium and long term structural and non-structural prevention and
mitigation plans based on micro-level, hazard, vulnerability and risk analysis. However, this analysis is
yet to be undertaken. There is a need to ensure free flow of information to and from all relevant
entities to facilitate their systematic planning and investments, enforcement of DRR regulations,
monitor implementation and compliance of DRM measures. The State should consider options to
develop a data analyzing and clearing house function in the State, preferably under the Kerala Spatial
Data Infrastructure (KSDI).

The State Disaster Management Plan stipulates restrictions in hazard zones and has laid checklists for
risk assessment, to be followed by the implementing department prior to approving any infrastructure
development projects. However, there’s sub-optimal application of risk-information by agencies,
partly due to unavailability of downscaled multi-hazard vulnerability maps (up to 1:5000).
3. Legal and policy framework for disaster risk management: The Kerala State Disaster Management
Authority (KSDMA) established under the Disaster Management Act 2005 (Central Act 53 of 2005), in
the aftermath of December 2004 Indian Ocean Tsunami, identifies disaster risks as one of the main
challenges to Kerala’s development aspirations. Although prevention is clearly articulated as a role to
be performed by the KSDMA, its facilitating role in pre-disaster risk management and its relationship
with sector departments and other related agencies, are not clearly articulated and enforced. The
Kerala State Disaster Management Policy of 2010 needs an urgent relook to fit to the newly emerged
disaster risks.
4. Weak Coordination between the institutions: Due to the interdisciplinary nature of DRM, multiple
government agencies and departments deal with DRM directly or indirectly. The KSDMA is responsible
for both risk monitoring, developing and recommending mitigation/DRR measures and providing early
warning. However, weather forecasting is done by the IMD, the Central Water Commission (CWC) is
responsible for water level in rivers and reservoirs, Minister of Earth Sciences for monitoring
earthquakes, amongst others, without an integrated system linking them to KSDMA. Under the
existing governance structure, KSDMA and DDMAs are placed to support DRM across various
government departments and agencies in the State through its coordination and facilitation mandate.
However, to play its role in DRM, protocols for relationships and links between the KSDMA and other
agencies that produce and analyse DRM related data and information, the sector departments and

45
 agencies, need to be developed with clearly defined roles for each institution. Risk governance,
capacity, and funding limitations indicate that DRM mainstreaming efforts have not been fully
embedded in core sector activities in the State.
5. Inadequate disaster risk financing mechanism: Current system is characterized mostly by ex-post
financing mechanisms (e.g., budget reallocations) rather than ex ante (e.g. insurance of public assets,
market-based risk transfer etc.). The State draws its finances for DRM activities from Government of
India, and multilateral financing institutions like ADB and World Bank which are largely focused on pre
and post-disaster response activities and related policy support.

The Disaster Management Act, 2005 provides an enabling environment for the
creation/establishment of disaster risk funds– a) disaster response fund and, b) disaster mitigation
fund at the National, State, and District-level22. Presently only the National and State Disaster
Response Funds (NDRF and SDRF) are constituted and these funds are primarily aimed at financing
expenses for emergency response, relief and rehabilitation only. Both NDRF and SDRF cannot be used
for financing either mitigation and/or post-disaster reconstruction activities. Strong financial
management of disaster risks supports –
a) Disaster Risk Management: By putting a ‘price’ on the risk, disaster risk finance & insurance (DRFI)
provides cost-benefit trade-offs in investment in climate and disaster risk reduction, risk retention,
and risk transfer and ensures that the government is financially prepared to enact a swift post-disaster
response and reconstruction; and
b) Public Financial Management: By strengthening fiscal risk and public debt management agendas
helps the government to identify, clarify, and manage its contingent liability to disasters, and to
ensure that disasters do not negatively impact the debt profile and budget objectives for a country’s
development.

3.1.5 Proposed Transformational Approach for Rebuilding Resilient Kerala

Disaster risk management as a cross-cutting theme

In order to achieve resilient recovery and development of Kerala, mainstreaming disaster risk reduction
and resilience across sectors is key. Resilience is required in all sectors to protect against cascade failure
and to adapt the infrastructure against a slowly changing climate over the longer term. The August 2018
floods had a multi-sectoral impact, not just within sectors but also among. The floods highlighted the
interdependencies among various sectors and the ‘cascade failure’ where the failure of one aspect of
infrastructure, such as flood defences and reservoir, can lead to other failures, submerged roads,
damaged power infrastructure, leading to power cuts which thereby affect telecommunications networks.
The interdependencies in sectors therefore need to be managed well, especially as infrastructure is
becoming more interdependent. Mainstreaming resilience across sectors is a systems issue, requiring
collaboration, planning and sharing of information between sectors, anchored in the Rebuild Kerala
Development Programme.

22
National Disaster Response Fund (NDRF), State Disaster Response Fund (SDRF), District Disaster Response Fund
(DDRF), and National Disaster Mitigation Fund (NDFM), State Disaster Mitigation Fund (SDMF), District Disaster
Mitigation Fund (DDMF).

46
The RKDP takes a systems approach, rather than sector approach, to prepare for next extreme event and
adapt to climate change. Resilience in one sector is dependent on resilience in another, so modelling
infrastructure systems and scenario planning is essential to ensure that vulnerabilities in one sector do
not compromise others. Sharing of data and collaboration across the supply chain will be requisite for
such systems-level planning. System oriented resilient recovery and development requires medium-long
term planning for adapting and maintaining infrastructure and mainstreaming of resilience in regulatory
and policy framework. Regulations and design standards across sectors need to be revised to reflect the
multi-hazard exposure, vulnerability and uncertainty due to climate change. Regulation must also be
adapted to allow greater information sharing and collaboration across the supply chain to facilitate
Kerala’s resilient recovery and development as a whole.
In the aftermath of the floods, both structural and non-structural measures need to be undertaken to
build resilience and build-back-better. Across sectors like water, roads, transport, infrastructure designs
and plans, as well as institutions, regulations and standards need to be adapted and even be adaptable to
accommodate a range of future climate conditions. Changes in land cover and use, resource availability
and demographics in population will require flexibility in infrastructure location and design. RKDP’s multi-
sectoral risk-informed recovery and development planning is anchored in the following key questions:
1. What can happen? (i.e., what can go wrong?)
2. Why did it happen?
3. How likely is it to happen?
4. What can be done to prevent the happening and reduce the damages?
5. If it does happen, what are the consequences?23
Answering these questions would require conducting comprehensive multi-hazard risk assessment, that
will be key to systematically identify potential hazards, estimate its likelihood of occurrence and its
consequences, using appropriate downscaling techniques. All relevant sectors would require vulnerability
assessments to determine the design and planning changes required to make their infrastructure and
services resilient. Depending on the level of downscaled projections available, sectors can choose to take
a top-down or bottom up approach (see figure below). The bottom-up approach is more akin to traditional
engineering failure analysis in that modes of failure and the consequences are first assessed. This risk or
climate-informed decision analysis24 would then help evaluate the plausibility of these conditions
occurring in the future.
While conducting resilient recovery planning, sectors should consider incremental cost of additional
actions, to make cost effective decisions. Disaster risk reduction and embedding resilience would require
adding incremental features to reduce failure risks as long as the incremental benefits are perceived to
exceed the incremental costs.

23
Rolf Olsen, Ph.D., American Society of Civil Engineers. (2015). Adapting infrastructure and civil engineering
practice to a changing climate. Reston, VA, Committee on Adaptation to a Changing Climate.
24
Hallegatte, Stéphane, Ankur Shah, Robert Lempert, Casey Brown, and Stuart Gill. (2012). Investment Decision
Making Under Deep Uncertainty – Application to Climate Change, World Bank Policy Research Working Paper 6193,
The World Bank. Sustainable Development Network, Office of the Chief Economist.

47
Figure 6: Top-down versus bottom-up approach to climate proofing and adaptation

Source: Adapting Infrastructure and Civil Engineering Practice to a Changing Climate, 2015

Figure 7: An illustration of the cross-sectoral linkages and disaster risk reduction

48
 Sendai Framework for Disaster Risk Reduction and Sustainable Development Goals as a guiding
principle
A resilient rebuilding and development pathway, as envisaged by RKDP, will adopt the Sendai Framework
for Disaster Risk Reduction 2015-203025 and Sustainable Development Goals as guiding principle for
developing and prioritizing actions and investments. India adopted the Sendai Framework at the Third UN
World Conference for Disaster Risk Reduction in March 2015. There are overlapping indicators for SFDRR
and SDGs. Under the Sendai Framework, four priorities for action are identified:
1. Understanding disaster risk: DRM should be based on an understanding of disaster risk in all its
dimensions of vulnerability, capacity, exposure of persons and assets, hazard characteristics and the
environment. Such knowledge can be used for risk assessment, prevention, mitigation, preparedness
and response.
2. Strengthening disaster risk governance to manage disaster risk. Disaster risk governance at the
national, regional and global levels is very important for prevention, mitigation, preparedness,
response, recovery, and rehabilitation. It fosters collaboration and partnership. Creation and
operationalization of national platforms are a critical part of this process, bringing together
stakeholders with a role to play in risk reduction and management.
3. Investing in disaster risk reduction for resilience. Public and private investment in disaster risk
prevention and reduction through structural and non-structural measures are essential to enhance
the economic, social, health and cultural resilience of persons, communities, countries and their
assets, as well as the environment.
4. Enhancing disaster preparedness for effective response and to ‘Build Back Better’ in recovery,
rehabilitation, and reconstruction. The growth of disaster risk means there is a need to strengthen
disaster preparedness for response, act in anticipation of events, and ensure capacities are in place
for effective response and recovery at all levels. The recovery, rehabilitation and reconstruction
phases present a critical opportunity to build back better, including through integrating disaster risk
reduction into development measures.
Besides Sendai Framework for DRR the sustainable development Goals will be taken into consideration
for rebuilding a disaster resilient Kerala.

Inclusive resilience
As highlighted in Sendai Framework, the State will integrate gender, age, and disability considerations in
policies and practices to ensure inclusive and resilient development. Disability inclusive DRR efforts will
be strengthened across the State, including disability sensitive training, appropriate equipment and design
and construction of infrastructure for DRR purposes. Understanding the different needs and capacities of
women and men is critical to effective DRM, including enhancing women’s role in building broader
resilience. Efforts will be made to ensure compliance with the 15th Finance Commission’s
recommendations on gender budgeting in DRR through allocation of seed funds to ensure equitable
facilities are made available for both men and women in relief camps and shelters. Further, to ensure
gender sensitivity at grass root levels, grant in aid as part of the central allocations to the State may also
be allotted to advertise gender sensitivity in disaster risk reduction, thereby augmenting State resources
for LSGs. Kerala has 12.6% of senior citizens. All DRR efforts should also factor this huge population and
their needs. Disability and Older Persons audit system for all the public infrastructure is recommended as
part of the DRR resilience measures.

25
https://www.unisdr.org/we/coordinate/sendai-framework

49
3.1.6 Specific Interventions
Kerala will prioritize and implement the following actions and investments using the Sendai Framework
as a guiding principle and applying specific principles of resilience as described above.

Priority 1. Understanding disaster risk

 Mapping of all the existing initiatives (not specific) carried out on Hazard Vulnerability and Risk
Assessment and carry out a Gap Analysis.
 Based on the identified gaps, conduct multi-hazard risk assessments using various return periods for
major hazards. This will include hazard and disaster modelling, exposure database, vulnerability
analyses of buildings, infrastructure, and communities, and calculation of damages. Prepare multi-
hazard risk maps based on the risk assessments and stakeholder consultation workshops. The multi
hazard risk assessments shall be done panchayat wise, encouraging community participation, with
the aspiration to eventually culminate them into a Village disaster management plan or a GP level
disaster management plan. Conducting a risk assessment at the grassroots level through community
led participatory HVRA approach complemented by scientific mapping of hazards will help in
identifying solution and supplement the panchayat plan through participatory risk informed planning
 Prepare landslide hazard zonation maps in a scale appropriate for planning at local level for all
Municipalities and Panchayats in the Hilly areas (at least 1:5,000 scale).
 Integrate the risk maps into master plans and develop a guideline/policy document for preparation of
risk-informed master plans by ULBs.
 Develop a disaster damage and Loss database (for 30 years) disaggregated at least up to district level
 Establish a sustainable disaster risk management information system to ensure free flow of
information and data between departments and various portals by centrally linking to the Kerala State
Spatial Data Infrastructure (KSDI).

Priority 2. Strengthening disaster risk governance

1. Mainstreaming disaster risk management into development planning
 Carry out a mapping of Institutions and Capacity Needs Assessment to perform DRR training and
Research.
 Prepare/strengthen Departmental Disaster Management Plans including operational plans for all
sectoral departments, inter-sectoral coordination and information sharing between departments for DRM
and allocation of the annual plan budget of the respective department for investment in DRR.
 Ensure that disaster risk reduction plans in each department are drawn using a participatory approach
and are sensitive to the needs of vulnerable groups such as women, the elderly, persons with
disabilities, SCs, STs, fisherfolk and migrants.
 Develop Guidelines and Template for integrating DRR in Departmental Plans based on the findings of
the 2015 state-level consultations on mainstreaming DRR.
 Develop mechanism for monitoring departmental plans and actions on fund allocation and DRR
investment.
 Evolve a comprehensive training strategy of the Disaster Management Virtual Cadre in the State to
capacitate the respective departments based on Training Needs Assessment.

50
 Establish dedicated disaster mitigation cells, units, or focal points in key sector departments (PWD,
water, energy, transport, health, education, environment, and agriculture) under the overall guidance
of KSDMA and Department of Environment and Climate Change.
 Since local self-government institutions (LSGIs) in Kerala fund and implement most programs, build
capacity of office bearers in the LSGIs so they can address the interests of vulnerable groups like
women, the elderly and children, especially in the wake of a disaster.

2. Resilient Design Standards and Enforcement

 Improve flood protection and design standards. Based on the multi-hazard susceptibility, plan and
design for once in a 50-year river flood protection for major rivers including the canal systems and
drainage systems in Urban areas. The planning will consider both existing climate and land use
condition and future scenarios such as year 2040 with climate change and urbanization. Public service
design standards may be upgraded to the 1 in 50-year return period flooding and landslide events
(Nodal Department: Water Resources, Public Works Department, LSG Public Works Department).
 Review and amend as appropriate Kerala Municipal Building Rules and Kerala Panchayath Building
Rules considering local risk patterns across the State, National Building Code and IS Codes keeping
due consideration of disaster risks.
 Develop guidelines and design for climate resilient municipal infrastructure and ensure proper
enforcement for all the physical construction works to improve the quality of municipal infrastructure
services. (Nodal Department: Local Self Government Department, Public Works Department and
Public Works Department).
 Strengthen the regulatory enforcement procedures and systems to ensure all new critical
infrastructure projects comply with safe standards and specifications. Build the capacity of LSGD and
PWD engineers as well as Kerala’s construction industry in coordination with the Engineering Council
of India. Apply third party structural and safety audits to ensure compliance. (Nodal Department: Local
Self Government Department).
 Enhance resilience of settlements through a combination of incentives and disincentives to ensure
that constructions comply with safety standards and consider site specific hazard susceptibilities.
(Nodal Department: Department of Disaster Management, Local Self Government Department,
KSDMA)

3. Strengthening of KSDMA, DDMAs and local institutions

 Strengthen the SDMA’s role and resources to act as the coordinating and technical support agency for
mainstreaming DRR and climate change adaptation into Kerala’s development planning and move
Kerala towards adaptive governance.
 Update the State and District Disaster Management Plans and emergency operation manuals based
on lessons learned from the recent disasters.
 Establish and strengthen disaster management cells at LSGs for Cities and GP level.

Priority 3. Investing in disaster risk reduction for resilience

1. Mitigation Infrastructure and Measures
 Construct and amend facilities in the identified multi-purpose emergency shelters and improve access
to such shelters. Hand over the shelters to the communities with corpus fund for operation and
maintenance. (Nodal Department: LSGD Public Works Department, DDMA)

51
 Formulate a long-term Coastal Zone Disaster Mitigation Plan with a comprehensive Coastal
Development funds package (2018-19 state budget), year-to-year basis for investments in coastal
protection works. (Nodal Department: Coastal Zone Management Authority).
 Invest in flood protection infrastructure based on hydrologic and hydraulic studies in the downstream
of each dam and river conveyance capacity at different river sections. At a few critical locations along
the channels, install real-time water level sensors for flood early warning. (Nodal Department: Water
Resources)
 Construct and retrofit education and health infrastructure in hazard-prone areas to increase safety.
Nodal Department: Education, Health, KSDMA, Local Self Government Public Works Department)
 Prepare Disaster Management Plans for schools and hospitals under the overall supervision of DDMA
and KSDMA (Education, Health, KSDMA, DDMA).

2. Landslides Management Strategy

 Develop an integrated approach for landslides management. This would involve land use planning,
good land management practices in cropping, grazing and forestry, terrain depended road
construction, terracing and other contour-aligned practices in fields and plantations, and participation
of local communities. (Nodal Department: Local Self Government, Soil Conservation Department).
 Establish a coordination mechanism between Local Self Governments, Soil Conservation Department,
Mining and Geology Department, and Ground Water Department for assessing local landslide risks
when planning infrastructure. (Nodal Department: Local Self Government Department).
 Promote the use of bio-engineering solutions along slopes to prevent landslides in development zones
and in infrastructure projects (Nodal Department: Local Self Government).
 Based on the landslide damage investigation results from the August 2018 event, consult with outside
geotechnical experts including academia to develop a landslide monitoring system plan. Measures
may include remote sensing data analysis of slow-moving slopes and deployment of systems such as
ground-penetrating radars (GPRs) and differential GPS for monitoring landslides susceptibility.

3. Drought Risk Reduction

 Prepare and implement a State Drought Preparedness and Mitigation Plan.
 Promote grey water recycling and implement public water saving awareness campaigns.

4. Disaster Risk Finance and Insurance

 Develop a State Disaster Risk Finance and Insurance Strategy underpinned by three core functions of
State Disaster Response Fund, State Disaster Mitigation Fund, and State Disaster Risk Insurance Fund,
as seen in the following image:

52
 Figure 8: New structure proposed for DRM financing

 Launch Diaspora Bonds to finance resilient rebuilding initiatives.

 Develop an incentive programme26 for homeowners and MSMEs to encourage/incentivize
catastrophe insurance to protect their assets and businesses (including business interruption risk).
 Popularize existing crop insurance schemes (Nodal Department: Agriculture). Crop insurance / fishing
insurance (for boat or other equipment’s) scheme needs to be popularized and incentivized as many
of the farmers lost crops and agriculture land during floods and other coastal erosions. This could be
made a requirement for any farmer / fisherman interested is acquiring loans for agriculture purpose
or fishing purpose.
 Develop a model law to insure all critical infrastructure (e.g., roads and bridges, power transmission
infrastructure incl. sub-stations, hospitals and schools etc.) in which the government has an interest
including Infrastructure-built and operated on PPP basis.
 Develop an insurance-linked social safety net programme to support the poorer sections of the
community, particularly fishermen and subsistence farmers/agriculture labours, against natural
disaster risks.
 Consider innovative value capture financing techniques like TDR, land pooling etc. for raising funds.
The Town and Country Planning Act, 2016 has such provisions, however subordinate legislations
detailing out these provisions needs to be issued.

Priority 4. Enhancing disaster preparedness for effective response

1. Improving early warning systems
 Improve hydro-meteorological early warning systems. Expedite the establishment of 110 automated
weather stations in the State, along with end-to-end multi-hazard early warning systems.

26
Incentive programme could include reduction in stamp duty and/or property tax rebates, interest sub-vention for
home/small business loans among other alternatives.

53
 Develop an advanced hyper local weather prediction tool for monitoring and providing at least village-
level extreme weather warnings to public and local authorities. Integrate the tool into the existing
decision support system of KSEOC with the support of ISRO.

2. Improving emergency response systems

 Establish an incident emergency response system in Kerala, as per the NDMA Guidelines on the
Incident Response System (IRS).
 Strengthen Fire and Rescue Services with adequate high value critical response machinery to fulfil its
mandate of being the first responder to emergencies in the State.
 Create two additional Fire and Rescue and Civil Defence training institutes – one in
Thiruvananthapuram and the other in Wayanad (with focus on for hill area response training) – to
effectively fulfil the mandate of in-service training, community capacity building in disaster response
and Civil Defence training.
 Strengthen the State Disaster Response Force with adequate human resource and machinery to fulfil
its mandates with human resource shared between Fire and Rescue Services and Police.
 Establish an advanced tactical disaster response team with human resource from Fire & Rescue
Services and Police.
 Revamp Coastal Police with human resource and machinery to fulfil its mandate of ensuring coastal
security, disaster response and in-sea accidents.
 Strengthen Marine Enforcement with human resource and machinery to fulfil its mandate of ensuring
marine security, disaster response and in-sea accidents.
 Establish a coordination mechanism between SDMA, DDMAs, and dam operators for early warning,
emergency response, and action planning to mitigate downstream impacts (Nodal Department:
SDMA, Water Resources, KSEB).

3. Community-based disaster risk management (CBDRM)

 Create the Civil Defence Force for strengthening and institutionalizing community-based disaster risk
reduction initiatives.
 Prepare and implement a capacity building plan linked to the local Civil Defence Volunteers,
Community Rescue Volunteers, creation of community emergency response teams (CERTs) and
Aaptha Mithra Volunteers for community-based DRM (CBDRM) in the districts and urban local bodies
(ULBs) at high risk, with a focus on women, children, the elderly, and people with disabilities.
 Design and implement a DRM awareness-raising programme for school students from class 1 to class
12 and ULBs at high risk.
 Develop a Comprehensive CBDRM – Communities must be sensitized about their capacity and duty
towards DRM process and through simulation and execution drills trained and has a system in place
and is capable to take on minor localized disasters at their own and can also trigger and support the
government system for prompt action in case of a major disaster.
 Involve local communities in preparation of evacuation plans with a particular emphasis on
evacuation of vulnerable groups like the elderly, women and children, and persons with disabilities;
and components such as how early warning signals can reach them, whether they need assistive aids
at the time of evacuation etc.
 Develop a programme for constituting Community-based Disaster Management Teams based on
global best practices (e.g., Community-based Disaster Management practice of Cuba). It will include
training and equipping the presently existing community organizations of students like the National
Service Society (NSS) and Student Police Cadet (SPC) as well as community volunteer groups including

54
 fishermen. The trainings will cover detailed first aid lessons and life skills like swimming, rowing and
climbing.
Based on the above assessment and discussions with relevant line departments, immediate time-bound
interventions / activities are summarized in table following:

Table 5: Disaster Risk Management Actions and Results Framework

18
0-6 0-18 Expected
Activities Objectives months &
months months Outputs
beyond
Policy / Regulatory
To Review and
1. Update the State and update existing
District Disaster DDMP and SDMP
Management Plans, with mainstreaming
State DMP
Prepare City Level DM DRR and CCA
District DMP
Plans in five city Integration.
City DMPS
corporations and To develop guideline
X X Risk Sensitive
update existing plan for preparation of
departmental
(TVM). Departmental DM
development
1.1 Amend State Disaster Plans and integrate
plans
with Developmental
Management Policy
Plan.
(KSDMA, DDMA, ULB)
To prepare city DM
Plan for 5 corporation
2. Review and upgrade Take stock and
flood protection design Review the existing
standards in design standards
consultation with Review and upgrade Flood proof
concerned with disaster resilient X /resilient
departments (Water and climate smart infrastructure
elements
Resources
Department)

3. Strengthening of legal Enact a

framework for land use comprehensive Land-
(Land and Revenue use Act.
department) Develop a Land-use
Policy

55
 18
0-6 0-18 Expected
Activities Objectives months &
months months Outputs
beyond
4. Information and
Knowledge
Management
4.1 Improve access to
disaster risk
information in X
coordination with
KSDI, NDEM and other
existing platforms
(KSDMA)

Conduct
comprehensive
4.2 Conduct 1:10,000 scale land Land-use map
comprehensive land use mapping and and Zonation
use mapping (Nodal terrain linked land map for entire
Department: use zoning. Conduct X X Kerala at
Department of comprehensive 1:10,000 Scale
Planning, Land Use 1:5,000 scale land use 1:4000 Scale
Board, KSREC). mapping for select map for ULBS
urban local bodies of
the state
4.3 Conduct a 1:25,000
scale multi-hazard,
vulnerability and risk
assessment
incorporating 1 in 5, 1
in 10, 1 in 15 and 1 in
X X
30-year return interval
hazard scenarios.
Prepare risk maps.
(Nodal Department:
KSDMA)

Collect compile and

analyse disaster data
for a period of 30 Disaster
4.4 Develop disaster
years (minimum Damage and
damage and loss
2005-15 for SFM loss data for
databases X X
Monitoring baseline). monitoring
disaggregated up to
Sendai target
district level.
Develop mechanism A to D.
for collection and
compilation of

56
 18
0-6 0-18 Expected
Activities Objectives months &
months months Outputs
beyond
Disaster Damage and
loss data

Integrate with
Metadata involving
NSO/ DES
(KSDMA, DDMA, DES)
Identify and update
the human, material
resources and Critical
supply available at
4.5 Undertake resource
departmental level X X
mapping (KSDMA)
Develop a mobile App
Geocoding of data
Integrate with NDEM
database
5. Strengthen the Amend the Panchayat
regulatory & Municipal Building
enforcement of rules based on NBC
infrastructure 2016
standards and building
rules for resilient X
design and
construction of
infrastructure and
buildings

6. Prepare a State
Disaster Risk Finance Prepare a strategy
and Insurance Strategy based on the study
bringing together
Disaster risk
public and private reduction for
sources of finance. X
resilience
(Priority 3)

Institutional

57
 18
0-6 0-18 Expected
Activities Objectives months &
months months Outputs
beyond
Establish dedicated
disaster mitigation
cells/units/focal
points in core sector
departments.
Disaster risk
Implement a
governance
comprehensive
7. Mainstreaming DRR strengthened
capacity building
7.1 Develop Departmental to manage
programme for the
DM Plans. Integrate disaster risk
Virtual Cadre in
DRR in Departmental (Sendai
Disaster Management
developmental X X Priority 2)
available in 8
Planning and establish
departments as
DM cells in nodal
priority (25
departments.
departments over 3-5
years) mainstream
disaster risk
reduction in the
respective
departments.
(Nodal Department:
KSDMA)
Review the curricula
of training
institutions IMG,
7.2 Integrate DRR in the KILA, SIRD, ILDM,
training curricula of KF&RA, KH&FW, ICCS
existing institutions and so on
under state Develop DM Modules
Government to integrate and
impart Trainings
Include DM training as
part of the Institute’s
training calendar
Establish Civil
8. Enhance community
Defence (similar to Enhanced
preparedness and
Kottayam under the disaster
response capability
Apda Mitra) in all the preparedness
8.1 Establish a Civil
district for effective
Defence Force for X X
Develop inventory of emergency
strengthening and
trained people in response
institutionalizing
KSDRN (Sendai
community-based
Refresher training for Priority 4)
DRR initiatives
Apda Mitra

58
 18
0-6 0-18 Expected
Activities Objectives months &
months months Outputs
beyond
Constitute Village
8.2 Provide training and level Disaster
raise awareness management
among communities committees that can
on DRM and training prepare Village DM
of community-based plans using a X X
DRM teams. participatory
Preparation of DM approach. Provide
training for GP level
plans at village level.
and village level
officials.
Investment Planning
9. Construct multi- Disaster risk
purpose emergency reduction for
shelters and improved X X resilience
access to such shelters. (Sendai
Priority 3)
10. Construct and retrofit
Improved
existing education and
understanding
health infrastructure
X X of disaster
located in hazard-
risk (Sendai
prone areas to higher
Priority 1);
standards.
11. Formulate a long-term
Coastal Zone Disaster
Mitigation Plan,
Drought Preparedness
Disaster risk
and Management Plan,
reduced for
Integrated Flood Risk X resilience
Management Plan as (Sendai
well as a Landslide Priority 3)
Management Strategy
including nature-based
solutions

12. Improve hydro- Enhanced

meteorological early disaster
warning systems preparedness
including for effective
X
establishment of last emergency
mile hazard response
communication (Sendai
systems and updating Priority 4)

59
 18
0-6 0-18 Expected
Activities Objectives months &
months months Outputs
beyond
existing SOPs for
triggering
preparedness and
emergency response
actions (Nodal
Department: IMD,
KSDMA, DDMA)

13. Strengthen State

Disaster Response
Force, Fire and Rescue Effective
Services, and Police X emergency
with appropriate response
equipment.

14. Establish two

additional Fire and
Rescue and Civil
Effective
Defence training X emergency
institutes and Centre response
for Water Rescue
Training.

3.1.7 Disaster Risk Financing and Insurance

It is worth further elaborating on the complexities of Disaster Risk Finance and Insurance introduced under
‘Priority 3: Investing in disaster risk reduction for resilience’.
Uninsured losses have a substantial impact and can trigger a large cumulative output loss, whereas
insured losses are inconsequential or growth-enhancing27. The loss of income and slowing down of
economic growth are likely to reduce revenue collections. At the same time, public expenditures on
disaster relief, reconstruction, and recovery are likely to rise substantially. It is estimated that, without
factoring in additional resource mobilization, the revenue deficit could rise to Rs. 31,332 crore, which
would be nearly two-and-a-half times the budget estimate of Rs. 12,860 crore for 2018–19 before the
disaster. This impact on the overall budget of the State is in addition to direct losses from the immediate
destruction of property and infrastructure, which often already make up several % of the GDP28.
Comparison between insured and uninsured disasters suggests that insurance plays a mitigating role;

27
BIS Working Papers No 394, December 2012
28
According to a conservative estimate, close to 2.6% of Kerala’s gross state domestic product (GSDP) got washed
away by the floods instantly. (Source: PDNA, August 2018)

60
while it cannot guarantee positive growth, sufficient coverage helps avert the adverse growth response
that typically follows a major natural catastrophe.
Losses due to catastrophic events like the 2018 Floods far exceeds the insured losses. Estimated
loss/damage due to the 2018 floods is about Rs. 26,718 crores, whereas the insured loss is estimated to
be less than Rs. 1,050 crores (or <4 % of total losses). More than 80 – 90 % of the insurance loss is limited
to a handful of large commercial insurance contracts29.
The private sector has borne most of the impact of the disasters. The share of private sector damages and
losses is equivalent to 90 % of the total, while that of the public sector constitutes the remaining 10 %.
The PDNA indicates that nearly 90 % of the damages/losses were sustained by the State’s productive and
social sectors (primarily housing) and employment & livelihoods.30 From an economic perspective, the
impact was felt most by the agriculture, tourism sector and micro, small and medium-sized enterprises
(MSMEs), who normally have limited or no access to formal sector financing. Insurance penetration
amongst these segments is also equally low.

Figure 9: insured vs Uninsured Loss Figure 10: Sectors accounting >90% of D&L and
R&R Needs

Source: PDNA, August 2018

Currently, DRM financing is characterized mostly by ex-post mechanisms (e.g., budget reallocations)
rather than ex-ante (e.g. insurance of public assets, market-based risk transfer etc.). The State draws its
finances for DRM activities from Government of India, and multilateral financing institutions. The existing
financing mechanism consists of a mix of ex-ante and ex-post financing instruments. The ex-ante financing
mechanism primarily consists of the National and State Disaster Response Funds (NDRF, and SDRF). The
SDRF is capitalized by the Central and State Governments in the ratio of 75:2531 via fiscal transfers (from
the Centre) and budgetary allocation (by the State Governments). SDRF is restrictive in its use, the funds
can only be used for immediate relief and recovery operations and cannot be used for post-disaster
response and reconstruction activities including providing safety nets for affected households. When it
comes to disaster recovery and reconstruction governments are primarily dependent on ex-post financing
instruments including budget reallocation, assistance from Central Government, and raising debt

29
Losses incurred by Cochin Airport, the Port, and some commercial establishments/businesses.
30
Damages and losses incurred in millions of USD – housing (USD 916); agriculture, fisheries, & livestock (1,022);
and employment & livelihoods (1,480) against the total damage & loss (3,819). (Source: PDNA August 2018)
31
Recently the Central Government approved plans to increase the GoI share to 90 % across all states.

61
(including from multilateral financial institutions like the World Bank and Asian Development Bank) (see
the figure below).
Figure 11: Pre- and Post- Financing instruments for Disaster Risk Financing

In the absence of an active DRM financing policy and institutional mechanism, the Government by default
has become the (re)insurer of natural disaster risk in the State. Insurance penetration is not only low, but
also disaster insurance coverage is highly inadequate. The penetration of home insurance India is just
about 1% of the total general insurance penetration of 0.93%32, hence by extension the penetration of
home insurance in Kerala will not be significantly high. Also, going by the insured claims (<4% of the total
losses) post-floods 2018, majority of claims are related to either motor vehicles or
commercial/businesses. Similarly, in the case of agriculture insurance, less than 2% of the gross sown area
in the State is insured compared to the national average of >22%. In 2017-18, an estimated 48,250 farmers
(about 0.7% of farm holdings in the State compared to >35% of total farm holdings insured at the National
level) where insured under the Pradhan Mantri Fasal Bima Yojana (PMFBY).
Even a one percentage point (1%) rise in insurance penetration can reduce the burden on the taxpayer by
22%. New research from the world’s specialist insurance market, Lloyd’s of London, warns of significant
insurance deficit in 17 high growth countries severely exposed to the long-term costs of catastrophic
events, including India. The average uninsured cost of catastrophe in India is estimated to be 1.18 % of
GDP (or approximately Rs. 1,38,562 crore)33. Given that the post-disaster recovery and reconstruction are
primarily the responsibility of the respective State Governments, the shortfall (namely the uninsured
portion of the losses) leads to unnecessary burden placed on the State fiscal.

32
Insurance penetration = Total General Insurance Premium Volume/GDP. General Insurance Penetration in India is
equivalent to 0.93% of GDP compared to China (1.89% ), Brazil (1.77), and South Africa (2.74).
33
USD 19.72 billion finding by Centre for Economic and Business Research (CEBR) for Lloyd’s Global Underinsurance
Research (2012)

62
 Figure 12: Natcat Protection Gap in India, nearly 90% uninsured losses

The State’s ability to finance post-disaster reconstruction is significantly constrained by both the scale of
the reconstruction cost and the state of financial condition. The outstanding liabilities of the State was
about 30.7% of GSDP, and significant chunk of these liabilities are financed through market borrowings.
The estimated market borrowings for 2018-19 (prior to the flooding) was Rs. 23,881 crores of which 54%
(or Rs. 12,860 crores) will be used to finance revenue expenditures (pensions, interest payments, and
salary). This is likely to see significant increases; the revenue deficit could rise to Rs. 31,332 crore, nearly
two-and-a-half times the budget estimate of Rs. 12,860 crore for 2018–19 before the disaster. As a result,
both the market borrowings, revenue and fiscal deficits are likely to increase. The estimated recovery and
reconstruction costs (Rs. 31,000 crores), on average, works to about 15% of the State’s outstanding
liabilities, and 40% more than the market borrowings by the State in 2017-18 (Rs. 22,082 crores).

Figure 13: Recovery & Reconstruction Cost and Financing Revenue Deficit as a Proportion of Market
Borrowing

63
 Roadmap: DRM financing
The State of Kerala will face a number of major climate change adaptation and disaster risk management
challenges; a key one will be to adjust to the greater severity, frequency and geographic scope of natural
disasters. As witnessed by the recent floods, Kerala is vulnerable to increasing risk of climate change.
Extreme precipitation events and flooding that cause losses to human lives and infrastructure have
increased under the warming climate. The frequency of great floods and extreme precipitation events has
substantially increased under the warming climate, which is consistent with the observations as well as
climate model projections. As climate change intensifies weather-related hazards, the government faces
the twin challenges of strengthening the State’s resilience to disasters and other climate-induced changes,
and ensuring it has sufficient reserves to respond when disasters strike.
The GoK recognizes this urgent need to invest in climate adaptation and disaster resilience, and to set
aside funding for disaster response. One approach for the GoK for advancing DRM financing could be the
setting-up of a Climate Adaptation and Disaster Resilience Fund (CADRF) that can anchor GoK’s financial
protection strategy against natural and climate related disasters and finance investments to improve
climate and disaster resilience, while also funding low-carbon projects. The proposed Fund’s design could
be tested with select stakeholders, including private sector reinsurance and insurance companies and
investors, and disaster risk management and climate resilience experts to ensure it maximizes private
investment in climate resilience and disaster risk mitigation. If the Fund is successful, it could create a
replicable model which could be considered by other States to scale up public/private efforts to invest in
climate resilience.
The Climate Adaptation and Disaster Resilience Fund will include two complementary windows to increase
climate adaptation and disaster resilience, that need to be designed and operationalized in tandem:
1. A Disaster Risk Financing and Insurance (DRFI) window, focused on three priorities: 1) mobilizing
resources for emergency relief and response, effectively strengthening the existing SDRF mechanism;
2) establishing a disaster insurance mechanism for the government to fund post-disaster recovery and
reconstruction, particularly to support the poor and vulnerable households with post-disaster safety
net payments, and in reconstruction of public infrastructure; and 3) adjusting policy settings and
creating public-private partnerships to increase the financial protection of households, and small and
medium enterprises (SMEs), agricultural producers against natural disasters.
2. An Investment window, focused on financing public sector and targeted private sector investments
in disaster risk reduction including supporting investments in resilient infrastructure, and climate
change adaptation. The investment window will reduce disaster-related losses and therefore lower
insurance costs. It will also finance selected low carbon, green growth investments that increase
climate resilience while contributing to the global effort to reduce emissions.
Best available estimates suggest there exists a significant funding gap that needs to be addressed and the
CADRF has a potential to narrow it. The size of this gap will depend on the policy design of the Fund’s two
windows. However, it is clear that the government will need to consider new sources of funding – both
domestic and international – to deliver the desired outcomes. In order to maximize synergies between
the two windows, the Government will need to ensure they are embedded within a comprehensive and
mutually re-enforcing climate change and disaster risk management strategy.
Over the long run, effective investments in climate adaptation and disaster resilience will reduce the
funding needs for recovery and reconstruction. As public infrastructure is upgraded over time and more
stringent building standards are implemented, the State of Kerala will become more resilient to climate
change impact and disasters, and the cost of recovering from disasters will be reduced. Therefore, both

64
windows should be considered within a single coherent policy framework that strikes a balance between
investing in climate change adaptation, disaster risk reduction and disaster response.
The CADRF is a critical step forward to form the core of the implementation of this strategy. The
development of the strategy should also be seen in the context of the government’s broader fiscal risk
management framework. To ensure that GoK will be adequately prepared to manage the financial impacts
of natural disasters, the government has to situate financial protection of the budget against disaster
shocks within a larger decision framework for contingent financing. This should consider parameters such
as the GoK’s current cost of debt financing34, the State’s debt to GDP ratio, the potential fiscal impact of
disasters, and the cost of transferring this fiscal risk to the markets.
By elevating the public financial management of disasters to the core of its climate and disaster risk
management work the Government of the Kerala will seek to align itself with increasing trend taking hold
in the international community. This recognizes the importance of disaster risk financing and insurance as
an integral component of disaster risk management, public financial management, and financial sector
development. Development banks, such as the Asian Development Bank, and the World Bank, have
integrated financial protection into their disaster risk management frameworks. In addition, the 2014
World Development Report: Managing Risk for Development, emphasized the role of risk management,
including disaster risk financing and insurance, and risk mitigation, as a powerful instrument for the
international development agenda.
Some of the key questions around the design, governance, and funding of the CADRF that need to be
addressed include:
1. What is the best structure for the fund – off-budget or on-budget?
2. Which domestic revenue options are most feasible and realistic?
3. What are the best potential sources of domestic and international funding and how should the private
sector be involved?
4. What is the relationship between the CADRF and existing institutions? How would the CADRF
supplement the SDRF, and relevant mainstreamed budget allocations to other agencies, e.g. by
providing additional financing once they are exhausted? What is the relationship between the CADRF
and the State Insurance Fund?

Disaster risk financing and insurance window

The proposed Disaster Risk Financing and Insurance (DRFI) window of the CADRF could form the backbone
of a comprehensive strategy. The DRFI Window could complement existing disaster funds, most notably
the State Disaster Response Fund (SDRF). The existing annual allocation could remain in place to respond
to high-frequency, low-intensity disasters, while the DRFI window could provide additional layers of
contingency funding for lower-frequency, higher-intensity disasters. The fund could provide immediate
liquidity for response and recovery as well as long-term financing for reconstruction. The DRFI window
could be organized around three core functions:
1. Relief and Response Contingency Fund to mobilize resources for emergency relief and response,
through reserves and market-based catastrophe risk transfer solutions. This contingency fund should
accumulate resources across years to establish a financial buffer that will prevent large-scale disasters
from disrupting too severely the government’s annual budget, particularly in supporting the poor and
vulnerable households’ post-disasters. For instance, small farmers (land holding sized at 1 to 2
hectares) & marginal farmers (land holding sized at 1 hectare or less; a large proportion of marginal

34
Current GoI G-Sec yield is about 7.42 %

65
 farmers are additionally vulnerable as they cultivate on leased/rental land and/or are
“sharecroppers”), fisherfolks, casual laborers, persons with disability (PWD) etc. will need government
assistance post-disaster to meet their consumptions needs i.e., food, medicine, and essential needs.
2. Catastrophe Risk Insurance Facility for Insuring Public Infrastructure Assets, the estimated
reconstruction funds needed for rebuilding the roads and bridges is in excess of Rs. 10,000 crores,
whereas the State’s annual allocation for roads and bridges is slightly above Rs. 1200 crores and
majority of these funds are primarily meant for maintenance and upkeep of the existing road
infrastructure. Capital expenditure in Kerala is very low, 1.6 % of GSDP, compared to more than 5 %
in other progressive States like Gujarat, Maharashtra, Andhra Pradesh etc. Following major disasters,
like to the 2018 floods, the need for funds is enormous and cannot be met through re-appropriations
etc.

Table 6: Funding needs of Infrastructure Sector, Post-Disaster Reconstruction

Damages and Losses Total Recover Needs

Water, Sanitation and Hygiene ₹ 1,361 ₹ 1,331

Transportation ₹ 10,046

Power ₹ 353

Irrigation ₹ 1,483

Other Infrastructure ₹ 2,446

Total ₹ 1,361 ₹ 15,659

Source: PDNA, August 2018

3. Domestic catastrophe risk insurance market development through regulatory change and public-
private partnerships to increase the financial protection of households, and SMEs, agricultural
producers against natural disasters. This complex issue will require land, cadastre and planning
mechanisms to be established to support effective implementation of this core function.
Given the very different nature and coverage for each of the core functions of the DRFI Window, there
will be a need to develop separate instruments (e.g. funds) and insurance structures with different
management and other characteristics. Options of the design of such instruments will be discussed with
the government in a later stage.

Investment window
The Investment Window of the CADRF would provide a dedicated source of funding for investments that
strengthen the GoK’s resilience to climate change and natural disasters. The window would also aim to
contribute to climate change mitigation efforts through ‘green investments’ that enhance climate
resilience while also reducing emissions. Investments could include ex-ante resilience projects and top-

66
 ups of ex-post recovery expenditure to fund the resilience improvements made to assets as they are
rebuilt. The projects could range across three areas:
1. Risk identification and planning, including hazard mapping and integrating better information in
budgeting and planning processes of the line departments i.e., PWD, Water and Sanitation, Irrigation,
Public Schools and Hospitals;
2. Infrastructure, including ‘structural’ infrastructure such as strengthening public buildings and flood
protections and ‘non-structural’ such as forecast and early warning systems and development of
climate-resistant crops; and
3. Capacity building, including updating building standards and training to enforce them, and public
awareness campaigns.

3.1.8 Technical Studies and Assessments

The list of key studies to be carried out to support the above policy, institutional and investment activities
is provided below.

Table 7: Disaster Risk Management List of Studies

0-6 0-18 18 months

List of studies
months months & beyond

Policy / Regulatory

1. Conduct a mapping of existing sources of data for Hazard Risk and

Vulnerability Analysis (HRVA) and assessments at various levels X
and gaps (KSDMA). The State has a 1:50,000 scale assessment of
hazard and vulnerabilities. The need for preparing a finer
resolution HVRA and identifying the desired scale is a requirement.
The required studies are, develop benchmarks and baselines for
conducting detailed HVRA of the state. Prepare a term of reference
for conducting a detailed HVRA at the desired scale.

2. Conduct a study to explore sustainable financing options for DRR,

preparedness, and response and to establish a sustainable X
financing mechanism

3. Develop a Comprehensive Disaster Risk Financing Strategy for

X
Kerala - Policy reform and financing instrument recommendations.

4. Examine the feasibility, and cost-benefit of –

4.1 Incentivizing homeowners/SMEs to buy catastrophe
insurance to protect their assets/businesses – incentives could X X
include rebates on property tax, stamp duty.
4.2 Insuring critical infrastructure assets

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 0-6 0-18 18 months
List of studies
months months & beyond

Institutional

5. Conduct an institutional and regulatory assessment for enforcing

the Kerala Municipality Building Rules including legal and
X
administrative procedures, construction quality, supervision, and
certification systems. (ULB)

6. Institutional Capacity Assessment Mapping of Key state level

X
institutions and Training Needs Assessment Study (KSDMA).

Investments Planning

7. Conduct a detailed state-wide vulnerability assessment of critical X

public infrastructure and assets to site/location specific hazards
(Nodal Department: PWD, LSGD PWD, DDMA, KSDMA)

8. Integrating Ecosystem Approach to DRR through development

programmes – Pilot study (LSGs, KILA, KSDMA)
X

9. Assess the Capacity of the State and District EoCs including the
EWS and develop a roadmap for strengthening the systems
X
(KSDMA)

10. Crowd management: Kerala has numerous religious and non- X

religious festivals attracting large numbers of individuals. There
are basic protocols laid for crowd management in the State.
Rudimentary protocol exists but requires significant investigations
into effectiveness. This study will recommend minimum non-
negotiables for crowd management to be prescribed in the
religious and non-religious festivals of Kerala.

11. Shifting from explosive use to pyrotechnics: Use of explosive fire X

crackers in festivals is a long continuing practice. The State is
seeking viable and acceptable alternatives. A study needs to be
conducted to identify the requirements of the festival organisers
and viable safe alternatives needs to be identified

12. Quarrying: There are numerous quarries in the State, that follow X
explosive type quarrying considering the cost required for
adopting other lesser destructive type of methods. Explosive type
quarrying is known to increase the probability of landslides in the
immediate adjoining landslide prone areas. A study needs to be
conducted to identify suitable and viable alternatives that does not
increase landslide probability.

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3.2 Environment and Climate Change

3.2.1 Introduction
Kerala is flanked by the Western Ghats - one of the 36 global biodiversity hotspots – on the East and the
Arabian sea on the West. The tropical evergreen forest on the Western Ghats, the tropical monsoon
climate and the long coastline with an intricate system of backwaters along the coast make Kerala a
unique geographical and environmental location. The urban and rural areas of the State are interspersed
amid biodiversity- rich ecosystems in a rural-urban continuum.

Kerala has three natural regions — coastal lowlands, midlands and highlands; four major rock formations
— crystalline, sedimentary, laterites and sediments forming the low-lying areas and river valleys; ten soil
types derived from the laterite base; and twelve distinct agro-climatic zones. There are 44 rivers, of which
41 flow westward as the terrain shifts from the hills to the coast. All the rivers are rainfed and tend to
have little or no flow during the summer months. In total, there are 1,750 river sub-basins and 4,452 mini
watersheds. While none of the rivers are nationally considered ‘major’, there are four ‘medium’ rivers
between 150 km-250km long: Chaliyar, Bharathapuzha, Periyar and Pamba rivers. There are also
backwaters and lagoons along the coast. Kerala is endowed with several wetlands, including three Ramsar
sites - Sasthamkotta Lake, Ashtamudi and Vembanad-Kole Wetlands. Although, as per the Wetlands
Conservation and Management Rules (2017) of the Ministry of Environment, Forest and Climate Change
(MoEF&CC), the list of wetlands (above 2.25 ha) excludes forests and coasts, these are also to be soon
notified as wetlands in the State. There are mangroves in some of the coastal districts. Almost 80% these
are in the northern district of Kannur. Finally, there are 33 Important Bird Areas (IBAs).

Even outside of these declared eco-sensitive areas and forests, Kerala’s natural environment is unique as
it is gifted with varying soil profile, rich vegetation, distinct agro-climatic zones, vibrant climate, dynamic
hydrology, distinct geological domains and terrains and different mineral deposits. Therefore, economic
development – agriculture, industrial, infrastructure, urban, rural, tourism – will have to be embedded in
this rich natural environment. The two-way interaction, i.e. economic development depends on the
natural environment and the natural environment must bear the impacts of economic development, is
significant and pronounced in the Kerala context given its narrow land strip and dense population. Given
this context, scientific land use planning focusing on sustainability is a high priority for the State.

3.2.2 Institutional Framework

The Department of Environment undertakes activities related to the protection and conservation of
environment through its three wings – the Directorate of Environment & Climate Change (DoECC), the
Kerala State Pollution Control Board (KSPCB) and the Kerala State Biodiversity Board (KSBB). Each wing
has their stipulated activities. For instance, conservation and protection of wetlands, coastal zone
management and undertaking various technical studies on climate change are carried out by the DoECC.
Pollution abatement and regulatory activities are carried out by the KSPCB. The conservation of
biodiversity-rich ecosystems is carried out by KSBB which is a statutory body that performs facilitative,
regulatory and advisory functions on issues of conservation, sustainable use of biological resource and fair
equitable sharing of benefits of use of bio-resources. Per the Biological Diversity Act (2002), there is a

69
decentralized biodiversity management system with the National Biodiversity Authority (NBA) at national
level, State Biodiversity Board at state level and Biodiversity Management Committees at local level.
Further, since environment is a cross-cutting sector, several other departments like Agriculture, Forests,
Mining and Geology and LSGD, as well as institutions like the Institute for Climate Change Studies (ICCS)
also are key stakeholders.

3.2.3 Impact of 2018 Floods

Broadly, the impacts of 2018 floods to the natural environment differ based on their geographical
location. In the hilly ranges, the major impacts in the forest areas have been landslides. While 209
landslides were reported by various Forest Divisions, a total of 342 landslides occurred in the Revenue
Department marked land extents. Some of these landslides are 3-4 km in length and 20- 30m average in
width. Landslides were predominantly seen in slopes above 22° and most common between 22° - 28°
slopes. Majority of the landslide sites were along the fringes of forests, indicating that forest
fragmentation disrupting slope continuity was a major causal factor.35
In the midlands, plains and coastal areas, major environmental assets have been impacted. The overall
impacts of floods on the wetlands have not yet been studied. Nevertheless, due to flooding, wetlands
have received sizeable quantities of waste – accumulation of weeds, garbage, mud and silt, debris,
sewage, sullage and other pollutants — that have changed the organic composition of the water bodies.
Of these, the Vembanad Kole, a Ramsar wetland, has suffered the largest impacts. The midlands and plains
have also received the rich top soil run-off from the highlands. These have been collected and used by the
local community to meet their needs. Damages to wetlands/coastal resources were also noticed in
Vembanad, especially Thottappally, Kochi bar mouth and Munambam bar mouth. Decrease in native fish
diversity and catch were reported. Solid waste accumulation, especially plastic, in the spawning and
feeding grounds was observed. Mangroves at Mulavukad, Vallarpadam, Vypin, Mangalavanam,
Kumbalam, Nettoor-Valanthakad, Pallippuram, Chenganda, Cheranalloor, Vechur north and Kumarakom
were affected due to plastic and other solid waste accumulation.
Biodiversity impacts have also been extensive — it is estimated that 771 different landscapes, including
riverine, forest, plantations and agricultural fields were affected. The impact on landscapes will have more
long-term bearing on biodiversity as this leads to habitat modification.
In 2013, the IUCN identified and validated 25 key aquatic biodiversity areas in Kerala which holds
significant number of threatened species of conservation concern. Of these, eight aquatic systems have
been severely impacted. The major ecosystems affected were the riverine ecosystems. In fact, the
degradation of river banks due to removal of riparian vegetation, land use change and unscientific
construction of small check dams has aggravated the flood situation. The natural assets of rivers that have
been impacted include:
 Rocks in the river bed in the hilly areas close to the landslide locations.
 Erosion/deepening of the river.
 Fall in both the surface and the adjoining sub-surface water table along selected river stretches.
 Changing course of rivers in a few locations.
 Formation of sandbanks along the river. Rivers, irrigation canals and drains became heavily silted,
which increased turbidity of water for household wells and river flora and fauna.

35
Kerala Floods and Landslides 2018, Rapid Damages and Needs Assessment Report, 2018, Government of
Kerala/World Bank/Asian Development Bank, September 2018.

70
The impact on forest ecosystems is marked by soil erosion, loss of humus and widespread destruction of
the riverine vegetation. The problem is largely visible in areas where heavy rainfall has occurred. There
were limited losses of certain larger animals like tigers and elephants. Post-disaster observation of birds,
amphibians, reptiles and fishes indicate losses, which will be impact the population in future, as any
change in habitat and landscape will take time for the species to recover. Rapid assessments appear to
reveal that the impact was more on the invertebrates, e.g. insects, than on animals. An adverse impact
on the invertebrates would result in adverse impacts along the food chain for animals.
Damage and Loss – As per the PDNA, the total damage, loss and recovery needs estimated for the sector
were as follows:

Damage Loss Total Effect Total Recovery Needs

(Rs. crore) (Rs. crore) (Rs. crore) (Rs. crore)

26 0.04 26 148

*The data includes forestry as a subsector of environment sector.

3.2.4 Major Legacy and Current Issues

The environmental factors contributing to such a disaster and the subsequent impacts/damage were
analysed. Considering the magnitude of floods, certain negative impacts are only to be expected.
However, there are certain pre-existing factors that have likely contributed to the devastating nature and
extent of flood impacts.
 Growing population pressures and constraints of land availability that have resulted in largescale
conversion of unsuitable land for habitation purposes — e.g. in the immediate vicinity of the rivers.
This is due to inadequate land use planning policy, weak enforcement of land use codes and disregard
of environmental factors during construction. The number of landslides in the forests was much less
compared to similar steep areas that were open to human activities. In particular, road construction
is seen as a major reason behind a number of the landslides.
 Information gap, including a lack of research on ecology, environmental management and eco-system
conservation, about landslide-prone areas and vulnerability hotspots in the hill ranges, as well as the
inadequacies in the use of such information in decision-making (e.g. locating habitation and quarrying
activities) aggravated the impacts.
 Lack of sharing of environmental data amongst various departments, institutions and agencies in a
manner that it can be gainfully utilized for improved environmental decision-making. Utilizing the
existing data for formulating better developmental strategies also was not practiced.
 Limited coordination between the Department of the Environment and other important departments,
particularly the LSGD, Mining and Geology and Water Resources, in order to mainstream
environmental considerations in decision-making and implementation processes of these
departments and their line agencies.
 Weak capacity of the institutions under Department of Environment, especially the DoECC, and
therefore ineffective management of environmental issues, particularly in the field/at the zonal level.
 Absence of conservation and management plans for eco-sensitive areas such as coastal areas,

71
 mangroves and wetlands, undermining resilience of community in the vicinity.
 Non- availability or ineffective waste management systems leading to poor solid waste management
across the State. In particular, the use of non-recyclable plastics and other similar materials resulted
in large amount of debris in the water bodies during the floods. The clogging of drains due to these
plastics resulted in localized flooding.
 Absence of proper sewerage networks and sewage treatment plants led to the dumping of liquid
wastes in water bodies. During the floods, the absence of appropriate practices worsened the
impacts. Inadequate wastewater and solid waste management services not only affected the quality
of life in urban areas, but also impacted water bodies — which are valuable economic, environmental,
cultural and heritage assets — surrounding the urban areas (backwaters). They also led to deleterious
environmental health implications. Likewise, inadequate storm water drainage systems limited the
ability to urban areas to deal with flash flood events.
 Absence of a protocol and expertise to manage asbestos waste that were generated due to the
damage caused by landslides and floods.
 Overall, lack of adequate attention on addressing issues related to land, groundwater and surface
water contamination that may have aggravated the impacts of the floods and landslides.

3.2.5 Proposed Approach

Risk drivers noted above contributed led to negative environmental impacts and contributed to flood
losses. Therefore, recovery through creating resilient environmental measures would help in addressing
disaster risks and reducing impacts of future disasters. This section includes the list of policy, institutional
and investment interventions that will be required to address the environmental dimensions of disaster
risk management. The proposed interventions will build on each other chronologically by:
 Strengthening environmental data and knowledge.
 Developing institutional technology and partnership capacity.
 Developing Eco-sensitive Policy.
 Integrating relevant agencies and community-level stakeholders working on building resilience.

The following areas have emerged as the key environmental interventions that need to be addressed in
the context of building resilience.

3.2.6 Specific Interventions

Policy interventions
State Biodiversity Strategies and Action Plan: The National Biodiversity Action Plan (NBAP) at national
level and the Kerala State Biodiversity Strategies and Action Plan (SBSAP) at state level are the principal
instruments for mainstreaming biodiversity and for implementing the UN-CBD Strategic Plan for
Biodiversity 2011-2020 and the 20 UN Aichi Biodiversity Targets. To successfully conserve ecosystem
services, biodiversity should be integrated at all levels of policy and decision-making processes of
development. Necessary policy guidelines/orders may be given to all biodiversity managing line
departments and organizations to implement SBSAP. KSBB is proposing to establish a Biodiversity

72
Information System, which will be a single window source for all biodiversity information concerning
Kerala linking databases established by different institutions, departments and universities.
Banning specific uses of throwaway/single use plastic materials: Plastic usage is universal and diverse in
Kerala. Disposal of large amounts of plastic waste through incineration or landfilling is not eco-friendly.
The leachate from some of the plastic material causes the introduction of chemical substances to flora,
fauna and humans. Further, during the floods, non-biodegradable plastics caused several problems. For
example, clogging of drains and nallas due to plastic wastes resulted in localized flooding in many areas;
deposition of plastic and micro-plastic waste in wetlands, rivers and other water bodies caused danger to
marine and freshwater biodiversity, as well as reduced the carrying capacity of the water bodies. Given
this, it is necessary to consider a ban on single use plastics for certain uses – for example, carry bags,
plates, cups, tumblers, forks, spoons, thermocol-based products and decorative items. Alternatively, a tax
could be levied on single use plastic material. The list of banned or taxed items should include plastic-
coated items such as flex boards, which caused significant waste accumulation and disposal problem in
the aftermath of the floods and landslides. A list of alternate sustainable materials shall be provided along
with the ban. The concept of Extended Product Responsibility (EPR) shall be introduced on plastic
materials.
Extended Producer Responsibility (EPR): A technical committee should be established to identify the
products that can be imposed with the EPR liability to reduce waste generation. EPR should be initially
introduced on a list of articles and then scaled up based on the learnings from the same.
Eco-sensitive area conservation policy: Areas of ecological importance in the State, such as the hill ranges
(Western Ghats), the coastal ecosystems (mangroves and beaches), the wetlands (Ramsar sites and
others) and the river ecosystems are facing excessive population pressures. An overarching policy would
be required to limit further degradation of such eco-sensitive areas and to restore areas that are currently
degraded. For example, there are several quarries in the hill ranges, many of which are illegal. Since these
quarries create soil disturbances that facilitate landslides, their activities should be managed better
through appropriate policy and regulatory actions. Where recovery strategies are required, these should
be site specific, eco-friendly and based on a landscape and ecosystem approach to disaster risk reduction,
such as the use native vegetation for riverine area protection and slope stabilization, or the adoption of
“eco-safe” methodologies for road construction and maintenance in hilly or eco-sensitive areas.
Declaration of state wetlands under the Wetlands Conservation and Management Rules: A draft list of
wetlands in the State having area above 2.25 ha has been identified. These wetlands are important for
building community resilience. Once declared, these wetlands would contribute towards strengthening
the resilience as their management would be in line with the Wetlands Conservation and Management
Rules. For instance, there would be a no-development zone of 50 metres distance from the boundary on
the landward side around each declared wetland. This would provide the required buffer for protecting
the community surrounding these wetlands during extreme precipitation events. These wetlands are
expected to be notified by November 2019.
Safe rebuilding of affected areas: To ensure safe rebuilding of affected areas, the following measures
should be considered:
 Slope protection should be ensured at the time of developmental activities. A review of Kerala Minor
Mineral Concession Rules, Panchayat and Municipal Building Rules in tune with the State Disaster
Management Plan and hazard zonation must be ensured, especially considering biodiversity,
hydrological parameters.
 Identification of origins of perennial streams and conservation of watershed areas should be
implemented.

73
 Natural hazard zonation map at the cadastral level should be made available to Local Self Government
Institutions and District Planning Committees to ensure that construction of buildings and siting of
development projects, especially sensitive one like mining or check dams, do not happen in hazard
zones or vulnerable areas, especially for landslides and floods.
 Slope protection should be ensured at the time of developmental activities. A review of Kerala Minor
Mineral Concession Rules, Panchayat and Municipal Building Rules in tune with the State Disaster
Management Plan and hazard zonation must be ensured, especially considering biodiversity,
hydrological parameters.

Institutional interventions
Strengthening the DoECC: Institutional strengthening of the DoECC, particularly establishing its zonal
presence, is critical. The responsibility for managing environmental issues within the State lies with the
Department of Environment in general, and the DoECC in particular. The responsibility for coordinating,
monitoring and evaluating implementation of the State Action Plan on Climate Change (SAPCC) also lies
with the DoECC. The institutional capacity of DoECC is weak, particularly in terms of their zonal office
presence across the State. The DoECC’s management efforts are largely restricted to Thiruvananthapuram
since they do not have zonal or field-based offices. Their role in integrating and coordinating with the
other sector departments has so far been limited, particularly in terms of its zonal presence. Therefore,
the institutional strengthening of the DoECC through establishment of offices in the North, Central and
South Zones is imperative for effectively managing environmental issues and overseeing environmental
programs across the State.
Audit Cell: An internal audit mechanism will be established within the DoECC to review the institutional
effectiveness of various statutory bodies working under the DoECC. This cell will also remind the various
institutions about the need for coordinated efforts in achieving SDGs.
Institute for Climate Change Studies (ICCS): The ICCS must be integrated with and developed as a
technical support centre of the DoECC. As part of the rebuilding initiative, the ICCS can revisit regulations,
policies and strategies of various development sectors based on SAPCC. The ICCS could also undertake
and disseminate research on the impacts of climate change on key development sectors of the State. As
part of this, it could compile relevant studies and make it available in the public domain within a specified
timeframe.
Availability and sharing of environmental data and information: As part of institutional reforms in
environmental management, improving the availability of environmental data and information would be
undertaken. Relevant primary data and information would be shared so that for these can be gainfully
used for decision-making across departments. This would be a part of the cross-sectoral open data
initiative being planned under RKDP. As part of this, there should be a proper linkage between the DoECC
and State Council for Science Technology, and Environment, especially to strengthen data projects like
the ENVIS.
Further, there would be initiatives to strengthen IT-enabled supervision, monitoring and reporting
systems on environmental management across the State. The DoECC and the various authorities are
responsible for a number of initiatives that constitute the environmental management in the State.
Further, the DoECC is also responsible for the SAPCC. These initiatives require regular supervision,
monitoring and reporting. The current approach would be IT-enabled, streamlined and reports would be
made available for improved decision-making across all sectors.

74
Conservation and management of coasts and wetlands: There is a need to designate technically
competent field functionaries to monitor the conservation and protection of coasts and wetlands.
Towards this, an institutional arrangement is required designating the Social Forestry Wing of the Forest
Department to actively engage in the management, protection, monitoring and conservation of the coasts
as well as the wetlands. Management strategies for the same will also be formulated.
District level monitoring mechanism for wetlands: Identified wetlands will be managed by a monitoring
mechanism in the district level. The district level monitoring mechanism will comprise an expert member
from CWRDM, Environmental Engineer from the SPCB, a nominated member from District Panchayat and
a nominated member from fishermen community. Social Forestry division of Forest Department will be
coordinating this monitoring mechanism under the leadership of a Revenue Officer.
Green Technology Centers: Every household in Kerala has multiple possibilities for application of greener
technologies such as household composting, solar energy and resource recycling. Technical assistance for
eco-friendly building practices can also be provided by such centres. Green Technology Centres could be
established in local bodies, where young people could be trained in the installation and maintenance of
green technology. This concept could be initially tested as a pilot project and replicated subsequently, as
relevant, based on lessons learned.

Investment interventions
Implementation of the Integrated Coastal Zone Management Project: This is a World Bank-funded
project which works with coastal communities and other stakeholders. The objective of the project is to
restore and conserve coastal environs and to reduce pollution, thereby ensuring sustainable livelihoods
and upscaling economic benefits of ecosystem services through community participation. This project is
viewed and evaluated through sub-systems viz. environment and resources, society and economic
development. All of these interventions will contribute towards building the resilience of the coastal
ecosystems. The total budget is ₹280 crores.
Multiple investments to conserve the State’s three Ramsar wetlands: The management action plan of
three Ramsar wetlands has been approved by the Ministry of Environment Forests and Climate Change.
Budget allocations have been made and approved activities are expected to be initiated very soon. These
investments would not only conserve the wetlands but also contribute gainfully towards building
resilience of communities in the vicinity of these wetlands.
Implementation of Low-Carbon Economy projects: Costs-benefits of area-specific low-carbon economy
projects such as “Carbon Neutral Meenangadi” need to be examined to explore if similar projects can be
implemented in other districts as well. Similarly, by promoting more energy production from renewable
resources like solar and wind, the State can take steps forward to achieve SDGs.
The following is the table of interventions along with the proposed time lines and expected outcomes.

75
 Table 8: Environment Actions and Results Framework

(18
(0-6 (0-18 months Expected
Activities
months) months) & Outcomes
beyond)
Policy / regulatory
Enhanced mainstreaming of
biodiversity to implement the
Establish a Biodiversity Information System
UN-CBD Strategic Plan for
as part of the Kerala State Biodiversity X
Biodiversity 2011-2020 and
Strategies and Action Plan
the 20 UN Aichi Biodiversity
Targets

Banning specific uses of

Reduction in volume of plastic
throwaway/single use plastic materials X
waste generation and impacts
through a Government notification

Reduce waste generation

Extended Producer Responsibility (EPR) through identifying products
X
policy that can be imposed with EPR
liability
Enhanced conservation of eco-
Eco-sensitive area conservation policy X sensitive areas to contribute
towards increasing resilience

District level mechanisms to monitor Enhanced management of

X
wetlands and coasts wetlands and coasts.

Slope protection rules in turn with State

Disaster Management Plan ensured and
natural hazard zonation maps made
available to Local Self Government Safe rebuilding of affected
X
Institutions and District Planning areas.
Committees to ensure that construction
does not happen in hazard zones or
vulnerable areas

Institutional
Enhanced capacity to inform
Institutional strengthening of the DOECC, and provide recommendations
X X
particularly establishing its zonal presence on environmental/ climate
change issues at the field level

76
Internal audit mechanism established
Increase in institutional
within the DoECC to review the various X
effectiveness
statutory bodies working under the DoECC

Increased availability of public,

Institute for Climate Change Studies (ICCS) relevant and high-quality
integrated with and developed as a X climate research on
technical support centre of the DoECC. regulations, policies and
strategies
Streamlined use of data
Environmental data and information
X X /information for effective
availability and sharing to be transformed
decision making
Declaration of state wetlands under the Improved functionality of the
Wetlands Conservation and Management X wetlands for enhanced
Rules resilience

Establishing and maintaining IT enabled Streamlined oversight and

supervision, monitoring and reporting X X management systems for
systems on environmental management effective decision making

Green Technology Centres under Local Self Rebuilding a sustainable

Govt Institutions X Kerala by shifting households
into green technologies
Investment
Integrated Coastal Zone Improved coastal zone
Management Project X X X management that results in
enhanced coastal resilience
Improved functionality of the
Multiple investments to conserve the
X X X wetlands for enhanced
state’s three Ramsar wetlands.
resilience
Implementation of low-carbon economy Better use of natural
projects (e.g. “Carbon Neutral X X resources and more
Meenangadi”) sustainable localities

3.2.7 Technical Studies and Assessments

Guidelines on landslide-prone areas and critical vulnerable hotspots in the hill ranges: There have been
past studies on landslide-prone areas and critical vulnerable hotspots undertaken by organisations such
as the National Centre for Earth Sciences Studies (NCESS). The natural hazard vulnerability maps available
with KSDMA should be used as a basis for guidelines to be used by various departments and licensing
authorities to determine the suitability of particular areas for specific development activities. Regulatory
frameworks like Municipal/Panchayat Building Rules and Minor Mineral Concession Rule shall be
reviewed based on this to ensure that the risk of disasters can be mitigated through proper planning.

77
Additionally, there are distance regulations such as 1 km from Protected Areas, 50m from the nearest
habitation and 7.5 m from the boundary of nearest property. These would be reviewed in the context of
the available studies. Further, these Guidelines would be constantly updated with new information
available so that the clearance decisions have a scientific basis.
Study on mining impacts: A study on the impacts of mining on ground water level and destabilization of
slopes is critical. This would be undertaken by institutions like the NCESS to develop safe and sustainable
mining practices. Expected budget of ₹2 crore.
Low-material use and eco-friendly construction: Reducing dependence on materials sourced from
quarries would have to be done as they are resulting in negative impacts on the hill ranges. The use of
natural materials in construction would have to reduce in time. A study would examine alternative
approaches to construction to progressively reduce dependence on quarried materials.
Updating Kerala CZMP in line with the new CRZ 2019 notification: The new CRZ 2019 notification was
published on 18th January 2019. Soon, the MOEFCC would require the states to update their CZMP in line
with the new notification. Some of the provisions of the new notification are oriented to support tourism
and therefore requires the strengthening of the resilience measures by project proponents. For example,
certain construction activities in CRZ-III Zones have now been permitted. Therefore, the Kerala Coastal
Zone Management Authority (KCZMA) would have to strengthen its clearance conditions so that there is
greater resilience built into the project.
Planning studies for Kuttanad region: Climate projections (IPCC AR5) have predicted a sea level rise of
1.8 - 2 mm by 2030. Studies have revealed that about 169 sq.km. would be inundated due to a one metre
increase sea level in and around Kochi region.36 Agriculture and related activities in Kuttanad region are
expected to be severely affected by this sea level rise. This has major implications on the habitations –
their houses, their livelihoods and related activities - in and around the Kuttanad region that is expected
to be submerged. With the expected increase in rainfall intensity, a number of coastal cities would also
be prone to water logging and flooding. Planning studies would be undertaken to examine how this
progressive change would be addressed in Kuttanad region. These studies are imperative to ensure the
resilience of the Kuttanad communities.
Updating the Kerala State Action Plan on Climate Change (SAPCC): The process of updating the SAPCC
2014 is ongoing and would be completed by December 2019. Once done, the implementation of SAPCC
2019 would commence. This would involve not only the environmental sector but other sectors too.
About 32 stakeholders (line departments, agencies and R&D centres) have been involved in updating the
SAPCC.
Medium- and long-term impacts of disaster on biodiversity: Preliminary post-disaster studies on
biodiversity and ecosystem impacts revealed that the invertebrates, like insects, have been adversely
affected. Invertebrates serve as food for humans and are key elements in food chains that support birds,
fish, and many other vertebrate species. An adverse impact on the invertebrates would result in adverse
impacts along the animal chain. Further studies are required to determine the nature and extent of
damage and determine the remedial measures. Interlinkages with agriculture and fisheries sectors would
also need to be explored as part of such a study. This could lead to a detailed action plan for recovery and
improvement of biodiversity. Expected budget of ₹50 crore.
Studies of rivers and canals leading to the Ramsar wetlands: While the management action plan focuses
on the Ramsar wetlands per se, there is a need to study rivers and canals that lead to the wetlands. For
instance, the Vembanad-Kole wetland has 8 rivers feeding into it. These studies would result in identifying

36
Fifth Assessment Report, IPCC.

78
upstream preventive and management measures that would reduce the impact on the wetlands.
Impacts of floods on soil/land, ground and surface water contamination: There is evidence of
contamination of groundwater due to the 2018 floods. Further, due to damage on sanitation facilities,
there has been a contamination of both ground and surface water bodies. The nature and extent of
contamination across the State would need to be studied and remedial measures identified. As part of
this, the likely presence of PCBs and PAHs (used in transformers, lubricants and other heat exchanger
uses) would also be studied.
Implications of prevailing hazardous, medical and e-waste management practices in the context of
disasters: These three types of wastes are regulated under the the Environmental Protection Act. There
are several waste management practices, which are prevailing in different parts of the State. A study
would be undertaken to review the ongoing practices to determine how these practices would be
managed in the context of disasters.
Study to examine the issue of asbestos in the context of damage to roofing material caused due to the
disaster would be done. Though asbestos is banned, it was in use in the past, particularly as a building
material in construction, e.g. roofing. During the recent floods and landslides, there were damages that
could have released asbestos fibres, which are injurious to health. There is no protocol for the handling
of asbestos in the State. There are also no facilities available for their proper disposal. This study would
examine how to handle the issue of asbestos as relevant to potential disaster events would be done.
Table 9: Environment List of Studies
Activities 0-6 0-18 18 months
months months & beyond
Policy / Regulatory
Guidelines on landslide-prone areas and critical X
vulnerable hotspots in the hill ranges
Low-material use and eco-friendly construction X X

Updating of Kerala CZMP in line with the new CRZ 2019 X X

notification.
Planning studies for Kuttanad X X
Updating the Kerala State Action Plan on Climate Change X
(SAPCC)
Medium- and long-term impacts of disaster on X X
biodiversity
Studies of rivers and canals leading to the Ramsar X X
wetlands
Study of soil/land/ground and surface water X
contamination due to 2018 disaster
Study on the implications of prevailing hazardous, X X
medical and e-waste management practices in the
context of disasters
Study to examine the issue of asbestos in the context of X X
damage to roofing material caused due to the disaster

79
3.3 Strengthening Institutional Efficiency and Resilience

3.3.1 Public Investment Management Profile of Kerala

The overall public investment management (PIM) profile of Kerala is noted in the table below.

Table 10: Public Investment Management Profile of Kerala

Total public investment (Rs. crore RS.14500 Total public investment (% 2.3%
(2016-17)37 crore GSDP) (2016-17)38

Total Capital budget Expenditure RS.10120 Capital expenditure overrun 109.4%

(2016-2017) (Rs. crore)39 crore (2016-2017) (%)40

Private infrastructure finance RS. 2.555 Centrally sponsored schemes (in 87; RS.
(2018)41 crore value and number, Capital 20.30
6 projects Account)42 lakh
Cost overrun of State sponsored 21.0% Cost overrun of Centrally 16.5%
infrastructure projects (%)43 sponsored infrastructure
projects (%)44
Net Devolution and Transfer of 31.3% Total debt stock (% GSDP) 30.2%
Resources from the Union (% of (2016-2017)46
revenue)45 Grants from the State to LGUs 7.2%
(% of revenue)47

37
Government of Kerala government statistics (2016-2017). Includes the sum of capital outlay, KIIFB revenue,
externally aided projects and centrally planned schemes.
38
Ibid
39
Reserve Bank of India and staff calculations.
40
Ibid. Ratio of actual capital expenditure to capital budget estimates (using PEFA methodology).
41
Database of Infrastructure Projects in India 2018.
42
Kerala Finance Accounts (2018). CSS/Central Plan expenditure in capital account, part of capital outlay.
43
Ministry of Statistics and Programme Implementation (2018). Indicator refers to the original cost divided by the
anticipated cost.
44
Ministry of Statistics and Programme Implementation (2018). Indicator refers to the original cost divided by the
anticipated cost.
45
Reserve Bank of India, current Rs. Net refers to Gross devolution and transfers minus repayments of loans to
center and interest payments on loans from center. Total revenue is the sum of total revenue receipts, recovery of
loans and advances, and miscellaneous capital receipts per RBI methodology.
46
State Planning Board, Kerala Economic Review (2018).
47
Reserve Bank of India, current Rs. Total revenue is the sum of total revenue receipts, recovery of loans and
advances, and miscellaneous capital receipts per RBI methodology.

80
 Disaster risk exposure (Verisk 2.0 Human Development Index 0.784
Maplecroft)48 (2017)49
Losses due to natural disasters 6.5% Firms expected to give gifts for 77.9%
(%GSDP)50 government contract (%, 2014)51

3.3.2 Introduction
Bridging the infrastructure gap to sustain Kerala’s growth will require a quantitative and qualitive jump
in public investments. Kerala has made important progress in socio-economic development to date and
is distinguishing itself by its high human development. Going forward its transition to higher income status
will require a quantitative and qualitative jump in infrastructure, which is currently constrained by low
levels of public investments (2.3 % of GSDP in 2016-2017 and a lower bound estimate of 1.3 % for 2017-
2018 based on the latest budget data)52. Kerala’s current share is low by Indian — the national average is
5 % of GDP while the average of States is 4.3 % of GSDP — as well as by international standards. Emerging
economies such as Mexico spend an average of 4 % of GDP while countries like Colombia and Thailand up
to 6 % of GDP53. The Government recognizes this public investment gap and has established the Kerala
Infrastructure Investment Fund Board (KIIFB) to help address this issue, but this alone might not be
sufficient. Leveraging more private infrastructure finance is another solution in light of largely untapped
potential. The current level of public-private investment is very modest (6 projects totalling Rs. 2.555
crore).
Enhancing the allocative efficiency of public investments to maximize the socio-economic development
impact. These scarce resources are spread thin across an ever-growing project portfolio reflecting
institutional fragmentation and bottom up approach to project identification. Capital budget allocations
seem to be more driven by the recurrent demands of numerous constituencies, agencies and Special
Purpose Vehicles (SPVs), rather than based on the evolving development priorities of the economy or the
potential socio-economic impact of the projects. The over concentration of public investments in one
subsector — roads (35 %), even though the State’s road network is three times denser than the national
average, is an illustration of the potential to improve allocative efficiency through a more strategic and
stringent appraisal and prioritization framework.

48
Verisk Maplecroft (2018). The Climate Change Vulnerability Index evaluates the susceptibility of human
populations to the impacts of climate extremes and changes in climate over the next three decades. It combines
exposure to climate extremes and change with the current human sensitivity to those climate stressors and the
capacity of the country to adapt to the impacts of climate change. The index score is presented on a scale of 0-10,
where 0 represents highest risk and 10 represents lowest risk. For Kerala, the average of the following five cities was
taken: Kochi, Kollam, Kozhikode, Thiruvananthapuram, and Thrissur.
49
World Bank (2017). Average of the subnational values of three dimensions: education, health and standard of
living. In its official version defined at the national level, these dimensions are measured with the following
indicators: Education measured with the variables Mean years of schooling of adults aged 25+ and Expected years of
schooling of children aged 6; health measured with Life expectancy at birth and standard of living measured with
Gross National Income per capita (PPP, 2011 USD).
50
UNDP (2018). Kerala Post Disaster Needs Assessment.
51
World Bank Enterprise Surveys (2014).
52
Preliminary estimates does not include KIIFB and Externally funded expenditure due to data availability.
53
IMF Capital Stock Database (2015). Capital expenditure is used as a proxy measure the State-wise average using
RBI’s latest available data.

81
The resilience of Kerala’s infrastructure needs to be improved considering its high exposure to climate
risks (Maplecroft Climate Vulnerability Index). Climate related extreme weather events such as floods,
damaged a substantial share of the State’s assets in 2018 and require the equivalent to more than half of
the 2018-19 Annual State Plan outlay for reconstruction.54 The frequency and severity of such extreme
weather events and losses are expected to increase due to climate change based on the IPCC scenarios.
The Public Investment Management Framework would benefit from being upgraded to become more
climate informed, through a systematic screening of the climate risk exposure and resilience of major
infrastructure projects.
The operational efficiency of Kerala’s public investments has room for improvement considering the
important implementation delays and cost overrun of projects, affecting their socio/ economic return.
Centrally sponsored projects have on average a cost overrun of 16.5 % vis-a-vis 21 % for State sponsored
schemes. These are conservative estimates based on the data available as many projects do not even
report the amount of cost overruns in the financial accounts and CAG’s reports. Implementation delays
of State sponsored projects are very high, reaching an average of 24 months compared to their initial
schedule. These delays and cost overruns significantly reduce the return on the State’s investments.
Transparency and accountability of public investment management are improving, leveraging the
State’s strong social capital, ICT competencies and the innovative and participatory approach introduced
by RKI. KIIFB is publishing its projects on its Website. In the wake of the post disaster assessment the
Kerala State IT mission started mapping public and private assets, which could form the back bone of the
State’s public investment and asset database to be developed.

3.3.3 Trends in Public Investment

Kerala’s public investment efforts
The State of Kerala with a population of 33.4 million people, had a Gross State Domestic Product (GSDP)
per capita of Rs. 171,780 in 2016-2017. In recent years, Kerala has taken important steps in socio-
economic development, with the highest Human Development Index in the country as of 2017. In fact,
Kerala’s Human Development Index shoulders with countries such as Mexico, Colombia and Thailand,
ranging in high 0.70’s55. However, Kerala’s path towards a higher income status is constrained by its low
level of public investments, estimated at 2.3 % of GSDP for 2016-2017 and a preliminary 1.3 % for 2017-
2018.
There are many actors at play in Kerala’s public investment system. At the planning phase, the Chief
Minister sets investment priorities taking into consideration the fiscal anchors put forth by the
Department of Finance derived from the Medium-Term Fiscal Policy Plan. The State Planning Board
develops the five-year plan and the annual plan, integrating the project proposals from the different
administrations and Special Purpose Vehicles. The Board also carries out an annual review called the
annual economic review, which is sent to Parliament with the next year’s budget proposal. Project
proposals are reviewed by the Board at two stages. First at the concept stage, based on the project profile
and then at the appraisal stage, based on detailed project report. Following administrative sanction, the
corresponding funds are released by the Department of Finance to the line department/implementing
agency. In the absence of accrual accounting, the annual cash releases cover payments for both ongoing

54
The Annual State Plan outlay for 2018-19 is Rs. 29,1500 million.
55
Global Data Lab (2017).

82
projects as well as for the preparation / start of new projects. This makes it difficult to precisely estimate
the fiscal space available for new investments.
In the implementation phase, each sector agency implements investment projects, either directly or
through SPVs, while the Planning Department provides implementation monitoring jointly with the
Planning Board. Project monitoring focuses mainly on inputs and outputs and feeds into the annual
economic review. The evaluation function is very nascent, and the planning department is in the process
of setting up a division for project evaluation. There is currently no evaluation policy in place that would
provide common standards, guidance, and processes across sectors and actors. The feedback loop of
project monitoring and evaluation into the following planning and budget cycle is not systematic nor
documented, thus only marginally contributing to improve allocative and operational efficiency of public
investments. The figure below attempts to illustrate the main actors and phases.
Figure 14: Public Investment Actors and Process

Department
of Finance

Source: elaboration based on interview with Government agencies.

Kerala’s public investments are financed through four different mechanisms comprised of the Plan
projects financed through the budget’s capital outlay, the KIIFB, centrally funded schemes and externally
aided projects. Even though Kerala’s overall capital expenditure has been steadily increasing, public
investments remain low by Indian standards and international standards for an emerging economy.
Kerala’s overall total public investment amounts to 2.3 % of its GSDP, with capital outlay making up the
largest share of investment with 70 %, followed by KIIFB with 23 %, externally funded projects with 6%
and centrally sponsored schemes with 1% (see below figure)56. Preliminary estimates from the latest
budget point to a total investment of 1.3% of GSDP for 2017-2018. This reduction is largely driven by a

56
CSS/Central Plan expenditure in capital account, part of capital outlay.

83
decrease in capital expenditure. Compared to other Indian States, Kerala has the highest HDI, however it
has the 7th lowest level of public investment in the country.57 The public investment national average is 5
% of GDP while the State-wise average is 4.3% of GSDP.

Figure 15: Breakdown of Public Investment in Kerala

120% 2.5%

Public Investment (%age of GSDP)

Composition of Public Investment

100% 2.0%
80%
(%age share of total)

1.5%
60%
1.0%
40%
20% 0.5%
0% 0.0%
2013-2014 2014-2015 2015-2016 2016-2017 2017-2018*

Outlay KIIFB
Externally Funded CSS
Total public investment (% of GSDP)

Source: World Bank Staff elaboration based on Government financial accounts.

Note: New and enhanced KIIFB began disbursing from 2016 onwards. CSS is part of capital account.
*Preliminary estimates, does not include KIIFB and Externally funded expenditure due to data availability.

In light of Kerala’s low public investment, the Government modified the KIIFB in 2016 to be its main SPV
for financing large scale infrastructure projects58. The amendment of 2016 also empowers the fund with
innovative funding structures approved by the Reserve Bank of India and the Securities Exchange Board.
As can be seen on the figure above, the share of KIIFB financed projects has been increasing, yet the total
level of public investments as a share of GSDP has remained rather constant and low. There is thus
potential to leverage additional resources for productive investments, including from the private sector
and by creating more fiscal space. Beyond the level of public investments, it is essential to also improve
the allocative and operational efficiency of these investments to ensure that they generate sufficient
economic and tax returns to be sustainable.

Allocative efficiency of Public Investment

The allocative efficiency of Kerala’s public resources can be improved. There seem to have been a
crowding out effect of public investment by the growing current expenditures, as shown by the low and
declining share of public investments. While the investment cycle process is well defined and fiscally
disciplined, there is evidence of low allocative efficiency driven by over-concentration of investments in
one subsector (roads) and an institutional fragmentation, resulting in scarce investments being scattered

57
Please not that in this case Kerala public investment is defined as the sum of capital outlay, KIIFB investments,
centrally sponsored schemes and aid from abroad. For the remaining of the States, only capital outlay was used.
58
KIIFB invests in both social and physical infrastructure projects that are worth more than Rs. 98 crore

84
across a large project portfolio. Quantity is being emphasized over quality, particularly regarding roads,
as Kerala has one of the most extensive road networks in India, yet the leading cause of unnatural deaths
in the State are road accidents.59 Maintaining such a large road network becomes indeed increasingly
difficult and costly, particularly in the wake of climate change.

Recent evidence points to the crucial role investment effectiveness and public capital productivity play on
an economy’s potential output and overall public finances in the long run, with diligent project selection
as the cornerstone.60 Looking closely at the distribution of the State’s capital expenditure, economic
services made up 85 % of capital expenditure, followed by social services with 13 % and lastly non-
development expenditure. In terms of economic services, transport, particularly roads and bridges, had
the largest share of expenditure in 2016-2017 with 35 %, followed by general economic services with 25
% and major and medium irrigation and flood control with 4 % (see below figure).

Figure 16: Capital expenditure share by category 2016-2017

40%
Share of capital expenditure (%age)

35%
30%
25%
20%
15%
10%
5%
0%
Housing
Others

Urban Development

Rural Development

Others
Transport

Industry and Minerals

Medical and Public Health

Social Security and Welfare

Agriculture and Allied Activities

Water Supply and Sanitation

General Economic Services

Education, Sports, Art and Culture

Major and Medium Irrigation and

Scheduled Tribes and Other Backward
Welfare of Scheduled Castes,

Flood Control
Classes

Social Services Economic Services Non-Development (General Services)

Source: Reserve Bank of India (2017). 0 percentages are numbers below 1 %.

The sector concentration is less acute in the KIIFB portfolio. As of September 2017, the KIIFB approved Rs.
9100 crore projects with the road sector receiving the highest share of investment (19.0 %), followed
closely by Industries (16.9 %), Water Resources (13.5 %) and IT (12.7 %) (see below figure). Latest available
data points to an overall capital outlay of Rs. 3,339 crore in 2016-2017. The cross-cutting nature of KIIFB
and its stringent project preparation and vetting process can help improve the allocative efficiency of the
State’s investments.

59
Based on interview with the of the Secretary Public Works Department (PWD).
60
De Jong, J. et al. 2017, “The Effect of Public Investment in Europe: a model-based approach”. European Central Bank
Working Paper 2021.

85
 Figure 17: Approved KIIFB projects by sector (2017)

20%
Share of approved amount (%age)

18%
16%
14%
12%
10%
8%
6%
4%
2%
0%

Source: Kerala Investment Infrastructure Board (2017).

Indeed, the State’s allocative efficiency seems undermined by the current institutional fragmentation with
multiple SPVs competing for resources also hinders a more strategic and integrated resource allocation
focused on public policy objectives, such as improving mobility and clean multimodal transport, instead
of inputs such as km of roads built. Kerala’s rapid socio-economic development and drive for resiliency
will require increasingly investing in cross-cutting policies and programs that transcend the administrative
silos and imply coordination and cooperation. The planning and project selection process may need to be
revisited to enhance prioritization and incentivize collaboration, including by introducing an options
analysis to screen competing demands in terms of their impact and cost-effectiveness to achieve a policy
objective. This would also be an opportunity to introduce a more stringent readiness filter and a climate
screening to improve operational efficiency and enhance project resilience and adaptation as discussed
below.

Operational efficiency of public investment

The operational efficiency of Kerala’s public investments has room for improvement in view of the long
delays and cost overrun of projects, affecting their socio/ economic return. It is important to address the
overall operational bottle necks as there is empirical evidence of a positive correlation between public
investment efficiency and the quality of institutions61, thus resulting in higher quality infrastructure and
robust economic growth.62

61
Barhoumi, K., and others, 2018, “Public Investment Efficiency in Sub-Saharan African Countries What Lies Ahead?,”
Policy Paper 18/09 (Washington: International Monetary Fund).
62
“Making Public Investment More Efficient,” IMF Staff Report (Washington: International Monetary Fund) 2015.

86
Measuring the efficiency of public expenditure is not straightforward. It requires comparing the inputs
(capital budget), the outputs (assets created and value) and the outcomes (economic and social impact).
One upstream proxy indicator is the overall cost overrun of infrastructure projects that are centrally
funded and are worth more than Rs 14.70 lakh. In the case of Kerala, recent estimates point to an overall
cost overrun of Rs. 3750 crore, representing a percentage cost overrun of 16.5 %, above the national
average of 14 %.63 In terms of delayed projects in months, Kerala has 21 delayed projects with delays that
range between 9 and 31 months (see below figure). Regarding State funded projects, there are currently
252 incomplete works that are past their initial completion date totalling a budgeted amount of Rs. 1.491
crore (only those worth more than Rs. 1 crore are accounted for). The total cost overruns of State funded
projects amount to 21 %64 and average implementation delays are 24 months. In terms of cost overruns,
bridges had a cost overrun of 25 %, while buildings and roads incurred cost delays of 20.7 % and 14.1 %
respectively.

Figure 18: Cost overrun of centrally sponsored projects by State

(Rs. 14.70 crore and above, 2018)

300% 300

250% 250

Range of delays in months

%age cost overrun

200% 200

150% 150

100% 100

50% 50

0% -
Sikkim

Assam
Uttarakhand

West Bengal
Meghalaya*
Bihar
Nagaland

Jharkhand

Maharashtra
A & N Islands*

Uttar Pradesh
Haryana
Orissa

Andhra Pradesh
Gujarat
Madhya Pradesh
Mizoram*

Tripura
Arunachal Pradesh
Jammu and Kashmir

Kerala

Telangana

Chhattisgarh

Multi State
New Delhi
Tamil Nadu
Karnataka

Rajasthan
Himachal Pradesh

Goa**
Punjab

Note: Includes only projects worth Rs. 150 core or more. Manipur was excluded from the graph given that its cost overrun
percentage was 1,385 % (Outlier).

This also affects the State’s budget. Kerala has averaged a total revenue deviation of –8 % since 2008-
2009, while its total expenditure deviation has been only -2 % over the same period. However, in recent
years the absolute capital expenditure deviation changed drastically from an under-execution of 19 %

63
(Cost overrun is the anticipated cost – original cost of a project)/original cost of a project.
64
Only accounts for projects to which information was available (77 out of 252).

87
 to an over execution of 6 % between 2015-2016 and 2016-2017, which in a cash-based accounting
system is likely to lead to arrears affecting contractors and future bids.
For the latest available year, total expenditure overshot the initial budget by 9 %. Applying the
international Public Expenditure and Financial Accountability (PEFA) assessment framework, under
Pillar one -Budget Reliability- Kerala would score a B for indicator PI-1 (Aggregate expenditure
outturn)65 and a C for indicator PI-2 (Expenditure composition outturn).66 Looking closely at the
absolute deviation of capital expenditure, outturn reached 109 % in 2016-2017 driven also by the
conservative forecast of loans and advances by the State government. In terms of indicator PI-3
(Revenue outturn)67, Kerala scored a D in terms of its aggregate revenue outturn and a C for variation
in revenue composition. The main driver of Kerala’s low revenue forecast were low levels of non-tax
revenue such as social security and welfare contribution and other social contributions. These
contributions come in the form of fees government employees pay for insurance and other services
provided by the government.

Resilience of public investment

The resilience of Kerala’s infrastructure needs substantial improvement considering its high exposure
to climate risks and susceptibility to natural disasters, floods being the most common. Around 14.8 %
of Kerala’s land area is prone to floods and in specific districts this goes up to 50 %. Furthermore, Kerala
is a climate change hotspot compared to the rest of India per Verisk Maplecroft’s Climate Change
Vulnerability Index, which currently stands at 2.09 for the whole State.68 These risk factors were
highlighted by the 2018 floods.

In macroeconomic terms, upper bound estimates point to a total loss of 6.56 % of Kerala’s GSDP while
recovery needs currently stand at Rs. 30,800 crore. Around 2.6 % of its GDP was immediately lost
because of the floods. These losses have the potential to hinder Kerala’s economic growth. Looking
specifically at sectors of the economy, the infrastructure sector was the most affected by the floods
and has the highest share of total recovery needs (Rs. 15,400 crore) (see figure on left, below.). Looking
within the infrastructure sector, the transportation sector was the subsector that needs the most
recovery funds (see figure on right, below).

65
Aggregate expenditure outturn was between 90 % and 110 % of the approved aggregate budgeted expenditure in
at least two of the last three years.
66
Variance in expenditure composition by programme, administrative or functional classification was less than 15 %
in at least two of the last three years.
67
Performance is less than required for a C score and variance in revenue composition was less than 10 % in two of
the last three years. Kerala had 89 % outturn in each of the three years examined.
68
The Climate Change Vulnerability Index measures the susceptibility of human populations to the impacts of
climate extremes and changes in climate over the next three decades. It combines exposure to climate extremes
and change with the current human sensitivity to those climate stressors and the capacity of the country to adapt to
the impacts of climate change. The Climate score is presented on a scale of 0-10, where 0 represents highest risk
and 10 represents lowest risk. Kerala is currently in the 0-2.5 range.

88
 Figure 19: Share of disaster effects and Figure 20: Recovery needs by infrastructure
recovery needs by sector subsectors. Total recovery needs: Rs. 15,400 crore
51% 8%
38%
20% 27%
17%15% 18% 16%
14%
9%
2%
Productive Social Cross-Cutting Infrastructure 64%

Total disaster effects

Total recovery needs Water, Sanitation and Hygiene Transportation Power Irrigation Other

Source: UNDP Kerala Post Disaster Needs Assessment (2018).

The damage of roads alone is estimated to be Rs. 10,000 crore. In terms of budgeting, the floods are
likely to have a negative impact on revenue generation. According to preliminary estimates, the
revenue deficit could increase to Rs. 313.32 crore representing an increase by a factor of two compared
to the 2018-19 original estimate. The frequency and severity of such extreme weather events and losses
is expected to increase due to Climate change. Currently there is no such climate risk and resilience
screening in Kerala’s public investment management framework. The feasibility studies of large projects
focus more on the environmental impact of the project. Despite the fact that Kerala is highly vulnerable
to natural disasters and most of its public investment is directed at public works, resilience is not
considered in the prioritization and appraisal framework. This situation and the Government’s focus on
re-building a more resilient State, would warrant upgrading the current public investment management
system to make them more climate informed and the resulting infrastructure more resilient. This would
include the systematic climate risk screening of major infrastructure projects, the climate stress-testing
of project proposals and their economic and financial analysis as well as an integrated information
system, including geotagging of projects and assets.

Table 11: Assessment of Essential PIM features (Kerala)

 Strong  Moderate  Weak

Key Features Effectiveness Strength

Legal limits exist on deficit, debt, and guarantees through the Medium-
Term Fiscal Policy Plan (MTFP) in compliance with the Kerala Fiscal
Responsibility Act (2003). The MTFP is presented in the State
1. Fiscal anchor
legislature and fixes targets for all fiscal variables. Furthermore,
Kerala’s State Finance Commission is mandated to review the State’s
financial position and make overall recommendations. However, there 
89
 is an implementation gap. The fiscal target for the capital budget
informs the planning process but does not represent a strict ceiling
used for project prioritization. As the budget allocations are cash-
based rather than commitment-based it leads to resources being
spread thin over the project portfolio and time.
State-wise and sectoral plans exist; the State’s Twelfth Five Year Plan
provides strategic guidance for schemes and public investments,
including centrally sponsored schemes and foreign-funded projects.
An annual review, sent to Parliament along with the budget proposal,
provides an overview of the implementation of the plan and major
projects. Reporting is uneven across departments and more focused
on inputs and outputs than on policy or project outcomes. The
Planning Board and the departments issue guidelines for the
submission of plan proposals, including schemes and projects by the
departments. The plan is gender and child sensitive and aims to
2. Investment
incorporate the SDGs. Plan submissions are now done online through
planning &
http://www.planspace.kerala.gov.in, of which aggregated information
guidance
is available to the public. The submissions do not distinguish between
schemes and projects and the readiness and quality of the s
submissions and reporting vary greatly by departments. KIIFB
infrastructure project database is publicly available and provides more
granular information on the guidance and project status. The RKI
Memo envisages the development of an integrated, transparent and
participatory public investment management database, which could
build on and integrate KIIFB and the Plan’s systems and leverage the


geospatial mapping/ portal currently being developed by the State’s IT
centre. 2
Project appraisal is uneven. The Planning Board and the departments
issue guidance and templates for project submission at concept and at
decision stage (administrative sanction). There do not seem to be
central unified rules and regulations on project appraisal processes
and methodologies. The KIIFB has recently issued robust project
appraisal methodology for specific sectors. The methodology includes
3. Formal cost benefit analysis, feasibility studies, demand analysis and
appraisal environmental management plans per the Kerala Infrastructure
Investment Fund amendment of 2016. These requirements were
legally incorporated in the Kerala Infrastructure Investment Fund
(Amendment) Act of 2016. The Public Works Department is currently
upgrading its guidelines for the appraisal of road projects. The


development of common rules and standards for the appraisal of large
projects, incorporating Climate risk and resilience is recommended. 1

90
 Central review exists and is done by the Planning Board and by KIIFB
for their respective projects. There are published criteria and pipeline
of pre-approved projects on their respective Sites. However, details of
project design, results frameworks, costs and feasibility studies are not
4. Independent publicly available, nor are the results of the reviews of these projects.
review While the central review is independent from the departments
proposing the projects, it is still part of the government. The current
central reviews can therefore not be considered fully independent and


the lack of detailed project information available to the public does
not enable an independent assessment of the projects. 1
There are high level selection and prioritization criteria for schemes
and projects (often included in broader schemes), including through
the plan and through the budget process. However, detailed selection
criteria in terms of project options analysis, affordability, return on
investment and readiness are not explicit nor publicly available. The
5. Project
high concentration of capital investment on roads, the
selection &
underinvestment in maintenance as well as the large cost and time
budgeting
overrun of projects indicate the lack of selectivity and project
readiness and the potential for a more stringent project selection and
prioritization process. KIIFB is introducing project selection criteria and


accrual accounting of project’s full costs, which can help strengthen
the pipeline. 2
There is an implementation gap, as evidenced by the important delays
in project implementation (24 month on average) and cost -overrun.
Centrally funded megaprojects face on average a cost overrun of 16.5
percent State sponsored projects have a cost overrun of 21 percent.
The State government does provide a list of projects facing delays,
however, fundamental information regarding specific time delays and
6. Project
cost overrun are missing for many projects. Despite the government’s
implementation
efforts there is a lack of adequate and timely progress reports,
including on the central on-line portal PlanSpace. CAG also highlights
numerous issues with project implementation and SPVs, including
payments arrears, incorrect reporting of expenditure, important


reallocations of funds within the year, procurement issues, and lack of
compliance with project management and reporting guidelines. 1
Robust procurement guidelines exist, and e-procurement is already
developed. There is a unified e-procurement platform where tenders
are updated every 15 minutes. Procurement capacity is uneven across
7. Procurement
departments and delays are important, particularly for construction


and civil works. The Government aims to strengthen the procurement
framework through a law. A more detailed procurement assessment 2

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 is recommended to inform the reform and build capacity where it is
most needed.
The budget and accounting systems are cash based and not accrual.
The State IT Mission is currently in the process of geocoding
government assets, starting with government offices, electricity
networks. Roads and other public infrastructure could follow. This
8. Asset
would provide a digital and geo-localized asset registry that would be
management
useful to optimize asset management, maintenance and disaster risk
prevention. This would also require a unique common ID for public


investments from their planning stage to the asset delivered,
integrating both physical and financial information. 2
While elements of monitoring and review are embedded in the plan,
the State does not have a comprehensive evaluation policy as yet.
There exists Concurrent Evaluation and Monitoring of Schemes for
9. Completion
selected departments which are meant to directly feed into the
Review &
programming and budgeting cycle. However, these were formally
Evaluation
introduced in 2017 and have only been implemented across 9


departments so far. Likewise, the disclosure and feedback loop of
evaluations could be strengthened. 2
The State has a well-established right to information framework
introduced by the Right to Information Act of 2005. However,
operationally while there is a centralized portal that compiles all RTI
requests, it is out of date and request and responses are rarely made
10. Transparency
public. The proactive disclosure of information pertaining to public
investments and projects could be strengthened along the project


cycle. The development of a unified and public project portal as
envisaged under RKI would be a major improvement. 2
There was no evidence that the most recent five-year plan or its
guidelines effectively support strategic screening or prioritization of
major projects in terms of climate risk and resilience. This is a priority
of RKI which aims to enhance the State’s resilience by mainstreaming
it in country systems, such as public investment management and to
rebuilt stronger. Regarding adaptation and mitigation, strategies were
11. Climate smart included in the recommendations provided by the working group
charged with formulating the plan. Kerala does have a State Action
Plan on Climate Change that is aligned with the 2008 National Action
Plan for Climate Change (NAPCC). Furthermore, Kerala is currently in
the process of implementing the Energy Conservation Building Code


(ECBC). The ECBC is the central government’s initiative to address
energy efficiency in the commercial building sector. 3

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 Main Recommendations
 Enhance public investments, more in line with the national average, to sustain Kerala’s emergence to
a high middle-income economy, including by leveraging more public-private partnerships and
investments.
 Improve the allocative efficiency of public investments through a more stringent cross-sector vetting
and prioritization process for high impact, affordable and ready projects, based on formal and
transparent criteria and reviews.
 Issue unified and upgraded regulations for project preparation and appraisal, based on KIIFB and
international good practice to enhance operational efficiency and development impact.
 Integrate systematic climate risk and resilience screening in these regulations, starting with major and
risky projects.
 Develop an integrated project processing and monitoring platform, available to the public and
building on the initiatives of PlanSpace, KIIFB and the geotagging of public assets and infrastructure.
 Ensure that each project and related asset has a unique common ID, compatible with the plan, budget
and accounting classification for effective monitoring and maintenance. Open it to the public for
crowdsourcing and monitoring.
 Develop a State policy for the evaluation of public investments and institutions, including ex-ante,
mid-term and ex-post evaluation.

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3.4 Open Data

3.4.1 Background
National and sub-national governments around the world
are promoting open data initiatives to facilitate improved
access to data services in order to improve governance
and citizen awareness. In Kerala, there is currently no
systematic way in which even basic data in a number of
key sectors is made accessible in open, public, analysis-
ready formats. Such a coordinated and collaborative
effort across the Government could result in major efficiency improvements and usher in the foundation
of a new range of applications using modern technologies. This approach could not only save lives during
future disasters such as floods but also help put the State on a leadership path as freeing basic data in
appropriate formats could in turn unleash a creativity revolution in the IT start-up sphere and the youth
of Kerala, providing new types of knowledge services for its population.

3.4.2 Proposed Activities under a Kerala Open Data Initiative

1. Create Public-Domain Content: Identify and categorize existing data in each Agency to determine
data that can be freed in the public domain. Facilitate relevant agencies to collate data, create/update
basic datasets (e.g. through data creation workshops using Open Street Map, Google Earth, basic GIS,
spreadsheets, etc.) and learn about options for how these can be sorted (e.g. those that can be in
public domain and those for internal use), served, and accessed. A focused effort to remove
inconsistencies in data pulled from different agencies (based on a predesigned and approved
guidelines) would be taken up before making that available in public domain. The open content can
include tabular data, geospatial data, visualizations, other data and multi-media documents.
2. Evolve a comprehensive framework for the Open data project through stakeholder discussions:
These should cover the formulation of guidelines for data cleaning and removal of inconsistency, data
visualisation and data use (product service development).
3. Strengthen Open Online Analysis-Ready Services: Facilitate the hosting of services and cataloguing
of other relevant services from global, national, Kerala state, and other agencies. This could be
implemented by strengthening the Kerala Spatial Data Infrastructure (KSDI) which has been started
to host these kinds of services but currently does not do so in the public domain in appropriate
analysis-ready formats using open data Application Programming Interfaces (APIs) and appropriate
Open Geospatial Consortium (OGC) services. Attention also needs to be given to reduce restrictions
in using the data (e.g. eliminating passwords, etc.) and using appropriate licensing (e.g. from Creative
Commons) to make it truly open data and to encourage innovative uses. An example of an open data
platform is the Malawi Spatial Data Platform MASDAP http://www.masdap.mw/ where you can
access basic public-domain data across government agencies as thumbnails, online maps,
downloadable GIS shapefiles, or as open online services.
4. Application Development/Facilitation: Develop a Kerala Data Visualization Platform (e.g. prototype
http://spatialagent.org/Kerala/) to illustrate how public-domain data can be pulled in from services
from several agencies. This can build on increasingly powerful global data from earth observation and
global institutions that collate data from countries around the world, and also include data from

94
 national, state, and other sources.
These applications can take the
form of web portals, mobile Apps,
interactive e-books, and
customized dashboards to support
specific decisions at all levels.
These applications could be
developed both by government
agencies (e.g. for coordinated
reservoir operations, water
resources planning, transport and
urban planning, agricultural
services, service monitoring, etc.)
as well as by others. These
applications could also move
beyond data provision to include
powerful new ways to analyse
these data using models, cloud
analytics, modern artificial
intelligence solutions (e.g.
machine learning, deep learning),
and additionally make such
analytics available in the public
domain through this initiative
through script repositories such as
GitHub or other analytic APIs. The
applications could borrow from a
wide range of free data science
libraries to allow for modern
visualization of, and interaction
with, complex data customized to
be intuitive to support decisions.
5. Outreach: Develop a range of
Kerala Open Data Apps through
government and non-government
initiatives, hackathons (e.g.
through the Kerala Start-up
Mission in IT), open data jams, e-
book youth competitions and
challenges, etc. These can be
based on using the open data APIs
and web services from the Kerala Open Data Initiative and the products developed (including
interactive data visualizations and curated interactive content) can also be featured by the Kerala
Open Data Initiative.
All this work can be phased to grow from some initial set of basic themes (e.g. climate, water,
environment, disaster management, forest, landcover, infrastructure, etc.) to iteratively include more
agencies, data, and more advanced analysis-ready services.

95
3.4.3 Benefits
This activity could be a critical part of RKI’s activity in terms of moving the State to the level of ‘global good
practice’ with results visible even in the first few months. A concerted effort across departments to truly
embrace this concept with the appropriate safeguards (e.g. on privacy, data security), will allow Kerala to
join the ranks of just a select few parts of the world (e.g. Ireland) that have become leaders in this field.
 Improve creation of, and access to, open, free public-domain data services:
o Improved systematic cataloguing of available potentially-useful free data in the public domain
from global (e.g. NASA, ESA, NOAA, ECMWF, UN, World Bank, etc.), national (e.g. India WaRIS,
etc.), and state-level sources (incl. from government, academia, CSOs, private sector, etc.).
o Facilitated creation of new critical data across themes of relevance to Kerala’s sustainable
development.
o Improved access to these data as online Services in the public domain in analysis-ready open
formats
o Improved use of the data to generate information and knowledge to support decisions
through analysis and visualization. Some examples:
o Improved flood forecasting and early warning systems
o Inputs to Decision Support Systems (DSS) for Integrated Basin/Watershed Planning
o Inputs to real-time DSS for operation of water infrastructure (e.g. dams in a basin context)
 Improved technology for provision of a new range of modern government services especially as
connectivity inevitably improves even beyond the current levels in the coming years. These could
include the use of this open data and analytics foundation to spur the deployment of other
“disruptive” technologies (e.g. incentivizing or using such data through blockchain enabled systems).
 Improved public awareness to critical issues and options. Improved transparency of the government
and ability to build beneficial knowledge partnerships. Improved engagement of youth and diaspora
to contribute to the State’s welfare.
The Kerala Open Data Initiative supported by an appropriate Government Order, strategy, action plan,
and initial resources could help bring about a quiet revolution in the State in terms of modernizing the
way unfettered data can help connect institutions to solve current and future challenges, taking
advantage of opportunities that are already present in the State.

96
Figure 21: Types of Data

97
98
99
100
Figure 22: Kerala State Water Data and Analytics Centre

101
 Key Sector Priorities Under RKDP
This chapter details areas of critical reform and investments across sectors and departments that have
suffered the worst damage from the floods and where the impact on enhancing resilience will be most
significant. The chapter is a deep-dive into the particular key sector priorities themselves; going into detail
of the sector, how it was impacted by the floods, major legacy and current issues that hampered its rapid
recovery, a proposed sector-specific approach to resilient rebuilding, specific interventions to support this
approach, along with supplementary technical studies and assessments. Key sectors covered are
Integrated Water Resource Management, Water Supply, Sanitation, Urban, Roads and Bridges,
Transportation, Forestry, Agriculture, Animal Husbandry and Dairy Development, Fisheries, Livelihoods
and Land.

4.1 Integrated Water Resource

Management
4.1.1 Introduction
Kerala is blessed with rich endowment of water
resources. It has a high average annual
precipitation of approximately 3,000 mm and has
44 small and medium rivers, several lakes and
ponds, a vast stream network, as well as many
springs and extensive wetlands. However, this
natural system of water resources varies both
spatially and temporally, resulting in occasional
floods and droughts, as shown in the figure on the
next page. Within the same year, seasonal variation
in rainfall is quite remarkable. The bulk of rainfall is
received during the southwest monsoon, which
typically sets in by June and extends up to
September. The State also receives heavy rains
during the northeast monsoon, from October to
December. Approximately 90% of rainfall occurs
during these six monsoon months. The high
intensity storms during the monsoon months
result in heavy discharges in all the rivers, while the
prolonged dry seasons jeopardize farmers’ incomes
and people’s livelihoods. Additionally, Kerala has a
diverse topography ranging from the high ranges
(Anamudi Peak at 2,695 meters) to midland and
coastal plains and lowland areas near the coast that
fall three meters below sea level, all within a 100-kilometer (km) distance. This combination of intense
rainfall in the high ranges with a drastic elevation difference over a short distance causing peak runoffs,
combined with flat terrain towards the western coast presents the conditions for flooding like that
witnessed in August of 2018.

102
 Figure 23: Significant areas of Kerala that experience climate risk

4.1.2 Impact of 2018 Floods

During the August 2018 flooding, irrigation canals and drains became heavily silted, canal banks collapsed,
and many structures such as cross drains, sluice gates, weirs, check dams, diversion channels, etc., were
damaged. The drainage systems in urban areas were blocked due to flood waters carrying heavy sediment
load, compounded by local high intensity rainfall. Gushing waters spread deep into the habitations,
aggravating the damages to public and private assets. Both inland and coastal protection structures were
impacted, which caused salt water intrusion in the Vembanad Lake area.

In the case of hydraulic infrastructure, most of the damages occurred in smaller storage systems such as
small dams, storage ponds, diversion channels, embankments, etc. No major damage was reported to
large and medium dams. Nearly 200 storage ponds and 70 minor dams were damaged. Several gates are
now either non-operational or experiencing severe leakage due to structural damage – such as ruptures
in spillways, crevasses, sluice gates, etc. Approach roads leading to dams, site offices, and residential areas
were also heavily damaged.

103
As suggested by the PDNA, recovery activities could include integrated water resources management
(IWRM) embedded in a long-term vision laid down in Kerala’s sustainable development planning. With
IWRM in place it is possible to make proper plans for water safety and water security, based on actual and
planned land-use, resulting in multiple basin plans. The integrated basin plans need to be based on
sufficient and reliable data, and state-of-the-art hydrological models. The recovery process should break
inter-sectoral barriers to establish a holistic and mutually-beneficial framework for coordination; and
through doing so, identify best practices from various disciplines that encourage the creation of a healthy
river ecosystem that is beneficial to communities, economies, and biological processes. This RKDP further
develops on the suggested sector recovery activities proposed in the PDNA through further analysis of the
root cause and through consultations with public and relevant stakeholders.

4.1.3 Major Legacy and Current Issues

Current drivers of 2018 Floods

The challenges presented by water resources in Kerala can either be mitigated or exacerbated based on
how they are managed and developed. The severe damages incurred by the recent floods in Kerala are a
consequence of inadequately managed water resources. For example:
 Poor watershed management in hilly areas and loose soil from land not covered by vegetation, loss
of natural systems and flood plains along with the extraordinarily high intensity of rainfall over a very
short period, contributed to the landslides in the hilly areas.
 The immense siltation of canals, drains, gates, etc. exemplifies the lack of proper land management.
 Poor land use planning over the last decades resulted in increased flood exposure. Vembanad Lake
has been halved to less than 70 square miles over the last few decades and, with increased siltation,
the lake’s water-holding capacity has diminished by three-quarters. Similarly, the Kuttanad wetland
has declined by two-thirds reducing capacity for moderating floods.
 Loss of flood plains accentuated the impact of flooding which exemplifies lack of master planning and
inadequate attention to the role of nature-based solutions for flood mitigation — the areas where
wetlands reclamation was most significant were also the ones to bear the severest of the impacts of
the flood, which exemplifies poor land use and water resources planning.
 The massive volume of water released by the reservoirs systems highlighted the lack of coordinated
operations and inadequate multipurpose storage capacity.
 Inadequate flood and landslide warning systems contributed to the loss of over 498 lives.
 Post flood sedimentation and unregulated disposal of solid waste in rivers resulted in a reduced
carrying capacity and increased flood occurrence.

Although the recent flooding was produced naturally by the heavy monsoon rains, it was exacerbated by
poor management of water resources. The lack of monitoring systems and inadequate institutional
capacity limits the State’s ability to anticipate, forecast, and respond to extreme events and leads to sub-
optimal and ad hoc response, from one disaster/emergency to another.

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Legacy challenges
The August 2018 floods have catalysed the State’s commitment to improve water resources planning,
development, and management to decrease its vulnerability to water-related risks. This presents a major
opportunity for Kerala and its management of water resources to rebuild and reform in a more sustainable
and resilient manner. To do so requires adopting multifaceted strategies and a range of actions that
combine short-term measures for rapid recovery with medium to long-term measures to build in
resilience.
Although the State offers great potential for development of water as an economic engine, it has
substantial water resource management challenges that need to be systematically addressed to
accelerate resilient development. The major challenges associated with water resources management in
the State, many of which are mentioned in the Kerala Water Policy (2008) and were re-emphasized in the
post-flood analysis, include the following:
Water storage and coordinated reservoir operation: Reservoir storage and release, flood control,
hydropower production and utilization of available water has been site specific, reactive, and
uncoordinated. This approach has not allowed for optimized benefits from the multiple uses that a
properly-planned and managed storage would present. Storage in Kerala is also limited – reservoirs only
have the capacity to store less than a tenth of the State's average annual rainfall.
Carrying capacity of major water systems: As noted above, for Vembanad Lake this is reported to have
reduced to an abysmal 0.6 BCM from 2.4 BCM69 as a result of land reclamation causing erosion in top soil
from hills and upstream areas, and poor maintenance of existing storage and regulation infrastructure.70
Wetlands degradation: The numerous wetlands in the plains have come under threat due to entry of
agricultural runoff causing eutrophication, and encroachment for various uses including constructions,
disrupting the various ecological and economic services that these wetlands provide. Excessive
withdrawal of groundwater in the plains is also reducing the inflows into the wetlands. The management
of wetlands for sustainable fisheries, tourism, transportation, etc. is inadequate.
Poor Management of Hill Watersheds: Inadequate management of hilly-region watersheds has led to
range of problems. High-intensity cultivation in this well populated zone has resulted in increased top soil
erosion, to some extent increased the quantum of surface runoff and sediment yield and reduced
infiltration, leading g to downstream flooding, and reduced groundwater discharge during lean season.
The latter is critical to the of villages across the State relying on natural springs, rivulets, small watersheds
as their primary source of water supply.
Deteriorating Surface water quality: Kerala has a very highly urbanized population. Many rivers in Kerala
are highly polluted – above permissible limits – due to inflow of untreated domestic and industrial
effluents, and agricultural runoff. Most industries and large towns/cities are located near the floodplains
that are densely populated, and the capacity of wastewater treatment systems remains inadequate for
treating the effluents from industries and city municipalities.
Groundwater use and quality: In the plains and also in the midland, groundwater extraction is rampant
and unregulated both for agriculture activities and domestic uses, which is resulting in excessive seasonal

69
July 2008 report of Planning Commission
70
As an example, the damaged Thottappally spillway a leading channel1310 m long 365m wide with a bridge-cum-
regulator across the spillway channel, with 40 vents, each having 7.6 m clear span. The original discharge capacity
of the spillway is about 1812 cumec. The post flood assessment by a team of Central Water Commission (CWC)
experts reported that the average maximum discharge passing through the spillway is limited now reduced to 630
cumec, which is almost 1/3rd of the design capacity of the spillway.

105
drawdowns, causing drinking water shortage during summer. Percolation of untreated waste water and
other chemical pollutants and liquid effluents from septic tanks is contaminating groundwater. Seawater
intrusion is occurring due to the uncoordinated withdrawal of fresh groundwater from coastal aquifers.
Monitoring and treatment programs are needed to protect users of groundwater and the crops being
irrigated. Although restrictions have been proposed by the central government to regulate extraction,
enforcement is inadequate.
Sand quarrying: Unregulated sand quarrying in rivers and watersheds has led to bank erosion, lowering of
the water table, and created other environmental problems.
Coastal erosion: Coastal erosion in Kerala has destroyed hundreds of homes, forcing families into
temporary shelters, many of whom have been stuck there for several years now. Experts say a major
factor for the erosion is, ironically, the series of seawalls built by authorities along the coastline to prevent
the problem. The cyclical nature of the erosion has traditionally meant that sediment swept out to sea is
later deposited back on land. But the seawalls prevent the latter from happening. Other factors have also
been cited, including a 2017 cyclone, as well as intensive sand mining along the coast.
Climate change: Climate change could exacerbate Kerala’s vulnerabilities, if business continues as usual.
According to the Kerala State Action Plan on Climate Change (SAPCC), “…the country is highly vulnerable
to climate change because of high physical exposure to climate related disasters (65% is drought prone,
12% is flood prone, 8% susceptible to cyclones) and also the India economy and population depends on
climate sensitive sectors like agriculture, forests, tourism and fisheries.” Kerala specific impacts include
potential increase in variability in annual rainfalls and intensity of rainfall events, which could increase the
risk of floods and droughts in the State, increased temperatures which could increase water requirements
for crops, forests, and other vegetation, potential for increase in intensity and frequency of cyclones, etc.
Geographically, Kerala roughly divides into three climatically distinct regions – the eastern highlands
(rugged and cool mountainous terrain), the central midlands (rolling hills), and the western lowlands
(coastal plains). Although there are some commonalities, the key challenges across these three regions
vary as shown in the image on the following page.

106
 Figure 24: Natural Resources Issues in Three Regions of Kerala

Overarching Challenges
In addition to the fragile natural resources system in Kerala, inadequate management of water resources
and development also contributes to Kerala’s inability to mitigate risks and make more productive use of
water resources. Specifically, there are weakness in the three fundamental ‘levers’ or ‘determinants’ of
water resource development and management, i.e.:
1. Institutions and Policy Framework – Low capacity of institutions, inadequate coordination amongst
water-related institutions and between various wings of the Water Resources Department, and
inefficiencies due to partial implementation of Kerala’s Water Policy approved in 2008;
2. Information and Analysis – Inadequate hydrological data base, information systems, and tools for
sound decision-making and to enable forecasting and early warning to trigger emergency response;
3. Investment Planning and Implementation – Inadequate investments in building resilient
infrastructure, poor operation and maintenance of assets, contributing to economic losses across
sectors during extreme events.
As shown in the figure following, the state of water resources development and management is a function
of these three ‘levers’ or ‘determinants’ which combined, determine the resilience of the state to water-
related risks and its ability to use water productively in various water-dependent sectors. This, in turn,
leads to development outcomes in terms of economic growth and poverty reduction.

107
 Figure 25: Root Causes of Vulnerability in Kerala

When there are weaknesses in these ‘levers’ or ‘determinants’ as is currently the case in Kerala, water
resources cannot be planned, developed and managed in a sustainable manner. The first order impacts
are seen in heightened disaster risks and other environmental problems, in addition to lost opportunities
for growth in the numerous sectors that are dependent on water resources. Ultimately, economic growth
is jeopardized. It is the inadequacies in these three areas – Information and Analysis, Institutions and
Policy Framework, and Investment Planning and Implementation – that contributed to the disastrous
consequences of the 2018 floods. Addressing these areas will help Kerala better prepare for future water-
related disasters. The current challenges in each of these areas are described below.

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Institutions and Policy Framework
An enabling institutional and policy framework with supporting legal regimes and adequate enforcement
is required for integrated management of water resources. The institutional and governance framework
for water resources management has evolved over time in response to the growing challenges in the
sector. A decade ago, the government adopted integrated water resource management (IWRM) as the
basis for water resources planning, development, and management. However, the sound Water Policy
(2008), which mandates this approach, has not been fully implemented. The objectives of the policy were
to adopt an integrated and multi-sectoral approach for planning, development and management of water
resources. The policy calls for using river basins as the basis for planning and emphasized the importance
of comprehensive watershed and water quality management, as well as the establishment of evidence-
based planning and monitoring systems to enable appropriate institutional mechanisms and legal
measures for sustainable water resources.
The agencies at the national level that are relevant to water resources management in Kerala include:
 The Indian Meteorological Department (for weather monitoring and forecasting)
 The Central Water Commission (for national hydrology standards, centrally-monitored flow/level data
and official flood forecasts)
 The Central Ground Water Board (for collecting and validating data on groundwater levels and
groundwater quality)
 The National Remote Sensing Center (for improving access to earth observation products and
potential aerial digital elevation model (DEM) creation for low-lying areas)
 The Survey of India (for survey products including UAV-based DEM generation
 Central Pollution Control Boards (for pollution data and management guidance)
 National programs such as the PMKSY that integrated other programs and that finance irrigation and
watershed management activities.
 At the state-level, there is a complex array of agencies responsible for water resources management
including:
 Water Resources Department (still primarily focused on irrigation and projects)
 Kerala Water Authority (for water supply)
 Kerala State Electricity Board (operating hydropower dams that account for most of the dams in the
State)
 Centre for Water Resources Development and Management CWRDM (that reports to the Kerala State
Council for Science, Technology, and Environment)
 Kerala State Disaster Management Authority (to manage disasters such as floods)
 Other agencies that play a role, including the Kerala State Remote Sensing and Environment Center,
Kerala Agriculture Department, Kerala State Pollution Control Board, and other institutions at State,
District, Village and community-levels.

109
The principles established in the Kerala Water Policy have not been fully adopted. The implementation of
the policy is faced with many challenges. There are institutional inadequacies due to the way agencies are
created and structured for managing water. The multiplicity of line agencies engaged in the water sector
are operating largely in isolation in sectoral (irrigation, drinking water supply, industrial water supply) and
fragmented manner without taking cognizance of the interaction between the resources (groundwater,
surface water) and the sectors (irrigation, municipal water supply, hydropower, environment) they deal
with, and without considering the potential for co-sharing of benefits with a cross sectoral approach
results in sub-optimal performance of the sectors and agencies. The approach of the agencies is largely
‘supply oriented’, with no attention being paid to water demand management. These apart, there are
issues of the same agency performing multiplicity of functions. For instance, water resource assessment,
water resource planning & water development activities are undertaken by the State WRD. This involves
trade-offs. The WRD also undertakes flood control services along with irrigation, which act at cross
purposes. Similarly, the State Pollution Control Board, while undertaking water quality monitoring of
rivers and other aquatic resources, is also responsible for pollution control with inherent trade-offs. This
reduce the effectiveness of these agencies. Yet there are certain crucial areas of water management that
are left out-management of catchments, environmental flows in rivers, overall water resources
management, developing early warning system for floods.
Overall, with so complex an institutional structure, a multisectoral and cross-institutional approach to
planning, development, and management of water resources, which straddles sectors, presents a
particular challenge. In addition, water resources agencies lack the human and financial resources to take
on the massive tasks established in the Kerala Water Policy. Some such potential major capacity gaps are
in the following areas: catchment hydrology; water economics; environmental hydrology; computational
hydraulics, including flood forecasting and inundation mapping; dam safety; early warning system for
floods; reservoir sedimentation, and institutional economics. In general, there is a need to significantly
strengthen the capacities of water-related agencies as indicated above, including WRD, KWA, KRSSA,
KSEB, KSPCB, and other state agencies. As noted in the Kerala Water Policy (2008), “technical support for
integrated water resources planning at the level of Local Self Governments is grossly inadequate.”

110
 Figure 26: Illustrative Diagram of the Multiple Stakeholders in Kerala River Basins

Information and Analysis

Across all water-related departments, evidence-

based planning and management needs to be
strengthened. Fundamental to this is reliable,
accurate, and accessible water information system as
"you cannot manage what you cannot measure.”
High-quality and timely availability of and access to
water data are the foundation of sound planning and
decision making. But Kerala currently confronts
several challenges on this front. There is limited
availability of data at the level of meso- and micro-
catchments due to an inadequate hydro-met system,
including lack of sampling stations, low density of
gauges, broken equipment, etc. This leads to poor
quality data that is not sufficient for sound decision
making.

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 Figure 27: Modernizing Institutional Infrastructure

The State is endowed with a large number of perennial rivers, but there are very few river gauging sites,
which have long duration time series data, a prerequisite for hydrological analysis such as assessment of
surface water potential, flood frequency analysis, sedimentation studies, groundwater-surface water
interactions, etc. Further real-time monitoring of river discharge and stages is required for flood
forecasting.
Kerala has witnessed significant alterations in hydrology during the past 4 to 5 decades. The land use in
the State has undergone remarkable change not only in the upper hilly, forested catchments but also in
the midland and plains, with plantation crops like rubber replacing natural vegetation in the upper
catchment, and coconut and banana replacing paddy in the midland and coastal plains. This had a major
impact on the hydrology of rivers, especially on the surface runoff, base flow, flow regimes, the flood
absorption capacity of the river basins, and sediment load in the river water. However, there is limited
information on the impact of land use changes on catchments and basin hydrology.
A significant part of the flows in Kerala’s perennial rivers during summer period, which is a major source
of water for drinking water supplies, is due to groundwater discharge into the streams during the lean
season. A large proportion of the water which infiltrates underground during the monsoon comes out as
stream flows downstream. But there is hardly any research contributing to the knowledge on
groundwater-surface water interactions in river basins of Kerala. Most artificial recharge schemes in the
hilly areas are planned without taking this factor into account.

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An equally challenging problem is the limited accessibility of data, which does not allow agencies to access
information for planning and management of water resources. This is due to several factors, including
inadequate information systems and restrictions to data. Available data are scattered across several
agencies (e.g., Irrigation Department, CWRDM, KSEB, EOC, etc.) and often access to data is restricted,
hampering sharing of information across agencies. Without available and widely accessible data, it is
simply not possible to properly manage and develop water resources in the State.
Overall, there is a lack of detailed information on water resources conditions that is required for scientific
analysis to properly manage water resources and plan measures to make more productive use of water
in various water-dependent sectors (agriculture, energy, tourism, water transport/navigation, etc.) and
mitigated water-related risks (floods, droughts, sediment, etc.). Regular collection and analysis of data
relating dynamics of floods, erosion, sedimentation is required to analyse the potential impacts and to
support forecasts / predictions. Improved information management systems are needed to assimilate,
triangulate and process data for this purpose.

Investment Planning and Implementation

The objective of adopting an integrated and multi-sectoral approach for planning, development, and
management of water resources using the river basin as the basic unit as stipulated in the Kerala Water
Policy (2008) is yet to materialize. Multiple investment plans have been and are being made by various
agencies, but these are not yet consolidated, jointly analysed, or integrated, in large part due to the
segmented approach mentioned above. Cross-departmental shared-vision planning and coordinated
operations using appropriate knowledge base, analytical tools, and multi-stakeholder perspectives
accounting for all potential uses of water and water-related risks is needed. For example, well planned
and designed multi-purpose storage projects could generate multiple benefits, including generating
power, flood cushioning, increasing water security for irrigation and drinking water, and offering
opportunities for aquaculture.

Amongst the challenges related to investments are the following:

 Need for integrated water resources management to unlock the development potential of water
resources, including making more productive use for various purposes (hydropower, agriculture,
fisheries, energy, domestic needs) and reducing water- related risks and vulnerability of the State to
floods, erosion, sedimentation, environmental water stress and pollution.
 Inadequate analysis of water availability and use patterns, current and future, and with respect to the
vagaries of changes in weather/climate year-on-year – required for proper water resources planning
and management
 Limited understanding of the interaction between surface and groundwater management, and limited
application of measures for improved conjunctive use to ensure water availability for meeting various
uses.
 Inadequate understanding of several issues does not allow sound investment planning, including:
- The vulnerability of agriculture, aquamarine life, and navigation to low-flows.
- Damages to lives, assets, livelihoods from various flooding/heavy rainfall patterns.
- How much micro-hydropower (run of the river or water channels with minor diversions) could be
generated and connected to the grid and / or made available for use in local areas.

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 - How reservoirs should be operated to maximize multiple benefits of water – hydropower
generation, flood control, irrigation and water supply, fisheries, and environmental flows.
- Re-orienting the current supply side orientation towards demand management.
Additionally, investment programs supporting locally distributed storage are needed to improve the flood
cushioning capacity of the river basins. The disastrous impacts of the recent floods and historic episodes
of droughts stressed the importance of improved watershed management for maintenance of reliable
water sources—a low-cost high-reward investment. Lakhs of hectares of irrigable lands could be
developed increasing agricultural production across multiple cropping seasons and reducing poverty
levels. Reviving inland water transport presents a major opportunity but requires addressing current
carrying capacities of rivers that have been silted, amongst other measures. Other measures that should
be explored include:
 The utility of water storage systems (ponds, wells, tanks) during periods of water shortages (non-rainy
seasons) and augmenting storage by recycling grey water;
 Using canals to store flood waters by appropriately regulating the flow when water is not required;
 Developing customized Bandharas for water storage;
 Bringing abandoned rock quarries that have the potential to store large amounts of water during
summer months under the State’s storage network; and
 Above all, measures related to living-with-nature, restoration of wetlands, and maintenance of flood
plains should also be central to improving the State’s ability to respond to future disasters and
improve adaptive capacity to projected climate change.
The investment needs in the sector are substantial, and public financing alone is insufficient. Mobilizing
private finance for water is critical for filling the gap, requiring a major coordinated effort. A framework
for financing of the sector is needed, which requires developing a multiyear programme to prepare and
launch projects for public-private partnerships; work with stakeholders to prepare them to access
commercial finance; implement actions to boost capital mobilization. Strategic investments for water
irrigation expansion, hydropower development, and flood protection could be pursued as part of this
framework.

4.1.4 Proposed Approach to Resilient Rebuilding

Water resources management in Kerala presents an opportunity as much as a challenge. To address the
challenges discussed above and unlock the potential, there need to be simultaneous actions to improve
the three ‘levers’ or ‘determinants’ of: (i) Information and Analysis, (ii) Institutions and Policy Framework,
and (iii) Investment Planning and Implementation. The specific actions that need to be taken are described
below. With these in place, the root causes of Kerala’s current vulnerabilities would be addressed, and
the State would build resilience. As shown in the figure below, improving the three ‘levers’ or
‘determinants will contribute both to better managing disaster risks and to using water more productively,
which, in turn, will lead to improved outcomes for economic growth.

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Figure 28: Towards a Resilient Kerala

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4.1.5 Specific Interventions

The key interventions to address these challenges and contribute to sectoral resilience are as follows:

Table 12: Water Resource Management Institutions and Policy Framework

Actions Description

1) Defining roles and responsibilities of various actors and mechanisms for improved
coordination;
Institutional
reforms for 2) Restructuring WRD by basin groups to facilitate implementation of Water Policy
improved water for improved water resources management operations;
resources
3) Improving planning and operational coordination across agencies including the
management
WRD, KSEB, KSDMA, agriculture, fisheries, animal husbandry and transport
sectors;
4) Assessing the institutional capacity building needs of the water sector, including
institutional reforms, organizational restructuring and human resource
development.
5) Evolving the institutional design principles to be followed for creating new
institutions for water resources management and basin-wide water development
and use regulation such as the river basin authority; the overall institutional
structures for integrated water resources management at the river basin level;
define the key functions of various agencies in the new institutional set up.
6) A clear distinction between water resources management and water allocation
functions which RBMA should carry out, and the water-related services
7) The current practice of multiple agencies performing similar functions in the water
resources sector of the State and same agency performing multiple functions
which reduce institutional effectiveness needs to be avoided to improve
transparency and accountability.
8) Representation from LSGs should be ensured in River Basin Management
Authority.
9) Implementing measures to improve coordination with national level agencies
10) Establishing a state level command centre for integrated and effective
coordination of operation of all reservoirs in the State

1) Developing capacity building programme for WRD staff and other relevant
stakeholders; and
Capacity building
2) Collaborating with other river basin management organizations, CWRDM,
universities and other research organizations for knowledge acquisition and
application in planning and investments.

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Actions Description

1) Implementing actions detailed in the Water Policy (2008)

Policy framework2) Setting water resources management objectives
3) Establishing effective quality and quantity regulation and allocation regimes;
4) Providing incentives for improved watershed management, detention storage,
water quality, etc.
5) Framing policies relating to supply and pricing in irrigation, domestic water supply
and energy sectors that encourage efficient use of water and energy resources,
and promote improved financial working of water and power sector, and resource
conservation.

Table 13: Water Resource Management Information and Analysis

Actions Description

Information 1) Improving data acquisition and knowledge management systems, including

Analysis reliable monitoring systems (water level, water quality, water use) with adequate
spatial and temporal coverage;
2) Establishing Kerala Water Resources Management Information System in RBMA
with interface with other systems under CWRDM, EoC, WRIS, etc.;
3) Developing modern management information systems (MIS) for mapping and
application of spatial and non-spatial data for analysis planning investments and
disaster risk reduction/mitigation activities;
4) Establishing decision-support systems for planning investments and monitoring
real-time operations; and
5) Improving availability of open, public-domain data and analytical tools (including
cloud analytics) for water resources planning and management

Strengthening 1) Conducting targeted technical studies, including hydrological and geo-

morphological assessments of river basins and aquifers, river carrying
Knowledge base
capacity, impact of land use change on basin hydrology and river flood
discharge; sediment loads, groundwater-surface water interactions, especially
impact of groundwater intensive use on lean season flows, assessment of
environmental flows; possible reduction in groundwater overdraft through
adoption of efficient irrigation of plantation crops
2) Assessing water storage capacity of dams, lakes, wetlands and other bodies
in the State;
3) Assessing the impact of climate change on water resources;
4) Developing master plans for Kuttanad, and other critical flood plains; and

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 5) Developing basin / catchment management plans

Facilitating 1) Establishing ICT data pooling and access systems with hierarchical data access
knowledge protocols for government agencies and public;
sharing among
2) Disseminating data and information for research by external stakeholders; and
various
stakeholders in 3) Establishing mechanisms for improved institutional cooperation with other
Kerala RBMAs for exchange of information and best practice

Table 14: Water Resources Investment Planning and Implementation

Actions Description

1) Integrating investment plans across sectors linked to water resources, including

identify gaps and overlaps in investments by various agencies and harmonizing /
Investment
rationalizing / coordinating planning and implementation;
planning
2) Exploring convergence of resources for higher economic returns on investments;
and
3) Identifying prioritizing, sequencing and designing basin /sub-basin investments.

1) Targeting investments for improved flood management, multi-purpose dams

and locally distributed storage, irrigation development, watershed management
Implementing
wetlands rejuvenation, etc.
investments
2) Integrating reservoir operations systems for improved management and use of
water.

Financing Strategy: A cross cutting issue is the need for a financing strategy for the sector. Revenue policy
needs to be brought in line with the water management policy and fiscal objectives. As indicated in the
Water Policy (2008), revenue policy in the water sector can be designed to promote efficiency and to
protect natural resources and enhance their value in use, as well as to generate fiscal resources. This
approach could apply to water charges. For example, irrigation water pricing will provide the incentive to
value and better conserve water, while also providing the finances to secure key operations and
maintenance functions such as dam operation and safety and irrigation water services. The policy could
also apply to pollution charges, with higher charges and efficient regulation deterring harmful behaviour
and raising resources for environmental protection. Overall, this approach would provide the enabling
conditions for an incentive framework that better aligns policy and fiscal objectives to drive best
management practices.

Based on the above needs assessment, specific interventions should be implemented in the following
areas:

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Basin Investment Planning
Decision Support Framework for Integrated Basin Investment Planning -
 Compile water data, hydrological, geo-morphological and sedimentation data into a GIS-based
information system to consolidate information, interface it with other systems to improve data
analytics and application of results, access to information in the public domain on hierarchical basis
for research and development activities.
 Undertake studies to develop the following: adequate knowledge of catchment hydrology--runoff
coefficients & base flow coefficients for different magnitudes of rainfall; changes in Maximum
Probable Floods of different river basins in the wake of changing land use, and implications for
reservoir operations/spillway design;
 Groundwater-surface water interactions--particularly the impact of reducing paddy area on
groundwater recharge and the impact of groundwater over-draft on lean season flows
 The extent of reduction in groundwater draft possible through efficient irrigation technologies; impact
of land use change on flood absorption.
 Undertake special studies to develop flood, drought, and landslide hazard, exposure, and risk maps,
climate resilience, green and grey infrastructure integration, wetlands and riparian vegetation, coastal
zone management, water quality, aquifer management, watershed management, river
rejuvenation, riverfront development, land-use management, inland water navigation, sand
mining, saline water intrusion, etc., in addition to Environmental Flow and Dam Safety assessments
(indicated below).
 Develop a detailed and robust analytical/modelling framework for basin planning and management.
 Mapping of all the stakeholders of water and other natural resources in the highlands, midlands and
coastal plains of major river basins to understand how the actions and interests of different water
users within the basin are interconnected need to be understood for integrated water resources
management planning at the basin level.
 Develop integrated basin/catchment management plans, using scenario analysis and incorporating
environmental flow assessment (refer below) to identify, prioritize and sequence future investments.
These should be developed with a combination of appropriate broad-based analytical and stakeholder
inputs.
Environmental Flow Assessment
 Conduct multi-scale environmental flow assessments.
 Conduct basin-wide analysis of flow regime (using a range of ecologically relevant flow variables and
statistics) at critical reaches.
 Analyse implications of flow regimes on habitat, river geo-morphology, water quality, river ecology,
and socioeconomic, cultural and spiritual values.
Dam Safety
 Prepare Emergency Action Plans (EAP)
 Conduct Dam Break Analyses

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Basin Investment Operation
Real-Time Decision Support Systems (RTDSS) for Flood Forecasting and Early Warning
 Develop real-time monitoring, flood forecasting and early warning systems.
 Improve systems for collection and dissemination of information on near real time basis.
 Build capacity at multiple levels to better use information.
Integrated Operation of System
 Develop systems for real-time monitoring, long-lead streamflow forecasting and integrated reservoir
operation system as part of the Operational DSS.
 Review and update operation guidelines and polices for integrated reservoir management.
 Establish Central Command Centre for integrated reservoir operation system in line with Dam Safety
Bill (pending).
 Conduct integrated operation analysis of the entire river systems and impacts of proposed
interventions and their hydrological effects in the basin area.
Institutional and Policy Reforms and Strengthening
 Thoroughly review existing institutional frameworks, policies and regulations, and make appropriate
changes so as to improve climate resilience, water productivity, ecological benefits, and other social,
environmental, and economic aspects of water resources management.
 Creating the River Basin Management Authority (RBMA) as a separate agency to regulate water
resources development and use across the river basins and to perform water resources management
functions. The authority will also ensure intersectoral cooperation, resolving conflicts. The role of
existing line agencies in the water sector of the State need to be redefined vis-à-vis the newly created
River Basin Management Authority.
 Improve provision of relevant water resources related data in free, public-domain, analysis-ready
formats. Convert appropriate available data to analysis-ready open data services, include relevant
earth observation data, use appropriate analyzation and visualization tools, and promote access
through appropriate apps, portals, and other platforms.
 Improve asset management system for water infrastructure
 Improve capacity to undertake and review environmental and social assessments for new water-
related investments based on appropriate data, tools, and effective stakeholder consultations.
 Set up state-of-the-art water centre to promote modern, multi-sectoral water resources planning and
management across agencies (incl. deputation from all relevant water related agencies, internships,
training programs, data integration, analytics, applied research, coordination, etc.)
Training and Capacity Building
 Develop training modules, materials, guidelines, etc. tailored to stakeholders needs. Improve links to
global and national good practices.
 Carry out awareness-building, analytical and participatory planning, technical training, short courses,
internships, visiting experts, staff exchanges, etc. for relevant staff and other stakeholders
 Design and implement mass public awareness programme, outreach and crowdsourcing activities.

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Facilitating Knowledge Sharing in Water Resources
Based on the above assessment and discussions with relevant line departments, immediate time-bound
interventions / activities to make more productive use of water resources and mitigate water-related risks
are provided below. These include cross-sectoral linkages to achieve optimal results and utilize resources
more efficiently.

Table 15: Water Resources Management Actions and Results Framework

0-6 0-18 18 months

Activities Expected Outcomes
months months & beyond

Policy /Regulatory

Approve regulation / Act to River Basin Management

establish River Basin Management X Authority established.
Authority

Operationalize River Basin Basin-wide water resources

Management Authority (RBMA) in management and
line Water Policy (2008) and the regulation of development
River Basin Authority Act and use of water by various
(pending). sectors Improved quality,
efficiency, transparency,
and accountability in
delivering water and
related services

X An umbrella for Dam

Safety Organization,
Wetland Management
Authority, Water Policy
and Planning Management,
and data systems
management

Central Command Centre

for dam operations
established

Strategy for mobilizing financial Implementation of Article

resources for sector development X 2.13 of Water Policy
and fund allocation. (2008).

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 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond
Volumetric measurement
of water consumption for
tariff collection.
- Cost recovery for operation
and maintenance of service
provision
- Financial resource for
management of water
sector

Preparation of water
management plan (to improve
rain water harvesting, storm
water recycling, ground water
recharge etc.) by ULBs to combat
drought.

Institutional

Establish and staff the water - Implementation of article

monitoring unit for management 2.10 of Water Policy (2008)
and operationalization of a real
- Data generated made
time data acquisition system for
available and accessible to
comprehensive monitoring of
the public.
water and environment.
- Mechanisms for data
pooling and sharing across
agencies.
- Develop River Basin
X
Planning Decision Support
System and sub-basin
plans.
- Establishment of Kerala
Water Resources
Management Information
System in RBMA with
interface with other
systems under CWRDM,
EoC, WRIS, etc.

Establishment and staffing of - Implementation of Article

water research, planning, and X 2.4 of Water Policy (2008)
strategic studies

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 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond
- State level master plan for
WRM
- Analytical/ modelling
framework established for
surface and groundwater
management, including
analysis of e-flows, surface-
groundwater interaction,
etc.
- Established action plan for
institutional strengthening,
reforms and capacity
building of technical cadres
across all water related
agencies
- Integrated Master Plan for
Kuttanad and integrated
basin / catchment
management plans.

Strengthen the Dam Safety - Implementation of Article

Authority with clear roles and 2.3 on Water Policy (2008)
responsibilities

Reorganize Department of
Irrigation around river basins and
X
define their relationship with the
newly created RBMA

Investments Planning

Real-Time Data Acquisition and

Decision Support Systems for
water management. X
Development of early warning
systems for floods

Investment plans and for priority

X
river basins.

Prepare priority investments (with

adequate attention to technical,
environmental, social, economic,

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 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond
financial, and institutional
aspects) based on integrated
basin plans

4.1.6 Technical Studies and Assessments

The list of studies to be carried out to support the above policy, institutional and investment activities
is given below:
Table 16: Technical Studies and Assessments

0-6 0-18 18 months

months months & beyond

Policy / Regulatory

Conduct detailed assessment of existing institutional X

frameworks, policies and regulations and provide
recommendations of reforms required

Institutional

 Review and provide recommendations for institutional X

strengthening and reforms (institutional structures, key
functions of various agencies, etc.) as well as capacity building
of technical cadres across all water related agencies.
 Design modern information system (using modern spatial and
data visualization tools and online services) to consolidate
information, interface it with other systems to improve data
analytics, visualization, and use.
 Provide access to information in the public domain on X
hierarchical basis for research and development activities, and
general information for raising public awareness
 Identify the ways to operationalize the concept of IWRM

Technical

 Develop analytical/modelling framework for basin planning and X

management that includes: Maximum Probable Floods of
different river basins due to changing land use and other factors,
and implications for reservoir operations/spillway design;
impact of reduction in paddy on groundwater recharge and
groundwater intensive use on lean season flows; and impact of

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 change in land use on flood absorption capacity of river basins;
etc.
 Conduct studies on catchment hydrology—relationship
between rainfall and runoff coefficients, and rainfall -base flow
coefficient at different magnitudes of rainfall
 Undertake environmental flow assessments, analysis of flow
regimes at critical reaches on a basin-wide basis, implications of
flow regimes on hydraulic habitat, river geomorphology, water
quality, river ecology, and socioeconomic, cultural and spiritual
values
 Conduct Dam Break Analysis and prepare Emergency Action
Plans (EAP).

Investments

 Develop short term priority investment programme with X

implementation action plan (tentative list of proposed
investments attached, and feasibility studies will be developed
at a later stage)
 Undertake integrated investment planning on priority basins to
identify medium to longer term investments across multiple
water-related sectors (including WSS, agriculture, hydropower,
tourism, disaster risk management, etc.)
 Formulation of guidelines on the structure, functions and X
framework for monitoring of the proposed River Basin
Management Authority (RBMA)
 Prepare the policy framework for the protection and
coordinated management of various surface water storages like
ponds and quarry ponds (including those in private ownership)
to be taken up as part of the total water security plan of river
basin
 Develop localized systems for grey water management and
channelizing the outcome for
 maintaining minimum environmental flow in water systems
 Ground water recharging
 Irrigation requirements at homestead level
 Explore possible programme for rehabilitation/ upgradation of
existing structures identified by departments like the
Chamravattam regulator cum bridge; Poringalkuthu spillway;
Boothathankettu barrage etc.

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4.2 Water Supply

4.2.1 Introduction
Kerala has an estimated population of 35 million, up from 33.38 million in 201171. Kerala is a little more
than two times more densely settled than the rest of the country, with an overall population density of
860 per square kilometre. About 52 % of the population lives in Gram Panchayats and 48 % lives in
Municipal Towns and Corporations. Despite the administrative boundaries, the population in Kerala
spreads across the State without any ‘confined settlements’ that can be classified as rural or urban
habitations, unlike other States in India. In fact, Census classifies about half of the population as urban,
however most of the population expects urban standards of living. This unique form of settlement has its
own challenges in extending piped network to all.
Data from the 69th National Sample Survey Office (NSSO) (2012) shows that 78% of rural households and
about 50% urban households in Kerala use well water as their primary source compared to the national
average of 10% urban households depending on well water, with tribal households depending more on
well water. About 75% of these are uncovered wells. More recent data (Kerala Rural Water Supply and
Sanitation Agency (KRWSA) survey 2017) shows that 80% of the rural population access well water as their
primary source, which is boiled for drinking as it is high on bacteriological contamination.
Based on 2018 data from KWA, about 54% of the population in rural areas and 60% of the population in
urban areas have access to household connections and public stand posts. However, only 2.23 of 8 million
households (28%) have piped household connections/Piped Water Supply (PWS), showing under-
utilization of the water assets created. Further, SC and ST households have lower access to piped drinking
water in their premises than the average household in Kerala. In sum there is a huge service delivery gap
in Kerala in addressing the Sustainable Development Goals (SDGs) which stresses on quality, availability
of water at all times and access within the premises (~ a water connection within premises to all and
supply of potable water).
Niti Ayog and United Nations had released SDG India index Baseline report in 2018. The score of Kerala in
overall performance with respect to SDG goals is 69 which is higher than the national score of 57.
However, when it comes to SDG 6 pertaining to WASH, the State score is 62 which is below the national
score of 63.
Table 17: Status of Kerala on SDGs

States Overall SDG score SDG-6 score

India 57 63

Kerala 69 62

*Source: SDG India Index: Baseline report 2018

71
http://worldpopulationreview.com/territories/kerala-population/

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 Table 18: Status of Kerala and India on various indicators pertaining to targets under SDG:6

States Population having safe & Annual ground water Installed sewage treatment
adequate drinking water withdrawal against net capacity as a proportion of
in rural areas (%) annual availability (%) sewage created in urban areas
(%)

Target 100 70 68.79

2030

India 71.8 61.53 37.58

Kerala 22.26 46.47 5.99

*Source: SDG India Index: Baseline report 2018

As mentioned in the table, Kerala has achieved its target in ensuring the access and usage of a functional
toilet to all. The groundwater withdrawal is also within the limits. However, access to safe drinking water,
sewage treatment and door to door waste collection is a major challenge.

The two guiding policy documents of Water in Kerala are (a) Kerala Water Policy (2008), and (b) National
Water Policy (2012). Provisions related to service delivery in drinking water sector in terms of legislation,
rules, regulations and notifications are covered under two Acts: (i) The Kerala Water Supply and Sewerage
Act, 1986; and (ii) The Kerala Panchayat Raj Act, 1994. The Kerala Water Policy (2008) recognizes access
to water as a human right and focuses on adopting an integrated and multi-sectoral approach. The State
policy envisages to capacitate the Panchayat Raj Institutions (PRIs) for fulfilling their responsibilities in
water and sanitation sector as envisaged in the constitutional amendments.

Water Institutions
Water Resources Department:
The Water Resources Department (WRD) administered by an Additional Chief Secretary, has an
overarching responsibility for water resource management in the State, including policy and regulation,
and takes the administrative level decisions of various line/subordinate Departments including Irrigation
Department, Kerala Water Authority (KWA), Groundwater Department, Kerala Rural Water Supply and
Sanitation Agency (Jalanidhi), Command Area Development Authority, and Kerala Irrigation Infrastructure
Development Corporation. The implementing agency for water supply is the KWA, an autonomous
statutory authority established for the development and regulation of water supply and waste water
collection and disposal for the State, with the Additional Chief Secretary WRD as the usual chair of the
Board of the KWA. In addition, the Local Self Government Department (LSGD) is responsible for
administering and managing the civic services in Gram Panchayats and Urban Local Bodies, including small
schemes and programs for water supply and sanitation.

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Kerala Water Authority:

Institutional arrangements for water supply went through Total number of 1081
considerable changes during the late 1980s. The KWA was schemes
established by the Government of Kerala (GOK) under the
Kerala Water and Waste Water Ordinance of 1984, by Total installed 3468 MLD (3016
conversion of the erstwhile Public Health Engineering capacity through WTP and 452
Department (PHED). This ordinance was replaced by the through Non WTP)
Kerala Water Supply and Sewerage Act of 1986, whereby
KWA became an autonomous authority for the New schemes 127
‘development and regulation of water supply and waste proposed
water collection and disposal in the State of Kerala’. This
implies both regulatory and service delivery functions Additional 1832 MLD
with an implementing agency which has resulted in poor current capacity
accountability and under-performance of the sector.
Total likely 5300 MLD
Under the decentralization initiative, GOK took a policy capacity
decision to devolve water supply responsibilities to the
local governments (Gram Panchayats and Municipalities) Per capita 176 lpcd
through the Kerala Panchayat Raj Act, 1994 and the Kerala availability
Municipal Act, 1994. However, most local governments
continue to depend on KWA for water supply services, (KWA December 2018 Presentation)
mainly due to capacity and financial constraints. As of
now, KWA has total assets worth Rs. 11,000 crores and further assets are being added with ongoing and
planned projects worth Rs. 12,500 crores (total Rs. 23,500 crores). If the proposed schemes are
completed, KWA would have capacity to supply every person in both rural and urban at ‘176 LPCD’ which
is quite high when compared with other States in India. The production capacity, however, is not evenly
spread across the State. KWA currently has an average cost of Rs. 24 / KL and revenue of Rs. 16 / KL. KWA
survives with annual subsidies worth Rs. 330 crores for salaries
and Rs. 281 crores for power. Further, the current accumulated PWS Coverage 54% Rural;
liabilities of KWA are Rs. 2291 crore, of which power dues are Rs. 60% Urban
1321 crore, several times the annual subsidy received. There is
need for a better understanding of the costs, revenues, tariffs Metering 100%
and subsidies associated with the KWA programme. In addition, (except
given the production capacity, it is critical that KWA improves stand posts)
distributional efficiency and increases its revenues streams.
Currently about 400 MLD of treated water is not being distributed Collection Efficiency 85%
due to lack of distribution networks. So far, the investments have
been skewed, with preference for creation of assets rather than O&M Cost recovery 41%
improving services and running a financially sound utility,
Non-Revenue 40%
resulting in low connections and low revenue.
Water*
The KWA has one head office, three regional offices, 12 circle
offices, 49 division offices, 136 sub-divisional offices, and 293 (KWA December 2018 Presentation)
section offices. It has 4859 technical staff including 743 *As per KWA presentation on 19/03/2019
engineers, 3938 ministerial staff and 6000 contractual staff,
which translates into 5.6 staff per 1000 connections. KWA’s average income from its operations is Rs.
42.43 crore/month, while its expenditure is much higher at Rs. 102 crores /month. While scheme level
data is not available, the overall information shows there is inadequate spending on O&M of systems (Rs.

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78.19 crore of Rs. 1245.64 during 2017-18, i.e. less than 6%), and hence difficult for KWA to sustain
services at a reasonable level. Several retirees were not paid their terminal benefits for the last two years.
Current liabilities of KWA are Rs. 2291.28 crore, of which power dues are Rs. 1320.97 crore. Although KWA
has implemented 100% metering (except for stand posts) and volumetric tariffs, the service connections
need to be extended, service delivery improved, and tariffs revised to improve the revenue stream. At the
same time the schemes need to be made cost-effective by improving operational efficiency, including
reducing power costs and NRW.
In the absence of scheme-level data, it is difficult to say which schemes are performing well and which are
contributing to losses. KWA water supply systems in Thiruvananthapuram and Cochin are notable with
70% coverage, aiming at 24 /7 supply, and contribute the bulk of the revenue of KWA. While KWA has
traditionally been an engineering agency with priority for asset creation, however, following the floods of
2018 and recognizing the shortcomings in service delivery, the GoK has now decided to transform KWA
into a service delivery agency. This is also well-accepted by the KWA as it would like to transform itself
into a modern, professional utility.

Kerala Rural Water Supply and Sanitation Agency (Jalanidhi):

The Kerala Rural Water Supply and Sanitation Agency (KRWSA) was created as a special purpose vehicle
to pilot sector reforms based on demand responsive approach, enhance local community ownership, and
provide access to remote habitations that were neglected. This programme, taken up with World Bank
support as “Jalanidhi”, aims at building local capacity and ownership, and facilitates transfer of single
village schemes to Beneficiary Groups (BGs) for improving service delivery. KRWSA has implemented
Jalanidhi 1 from 2001-08 and Jalanidhi 2 from 2011-19. Jalanidhi 2 is due to be completed in June 2019. It
is expected that 11 % of the rural population receives coverage under the Jalanidhi project. KRWSA has
succeeded in demonstrating sustainable operations through building partnership between GPs and BGs,
thus contributing to the decentralization and self-governance agenda.
Some of the highlights are: (i) The schemes are fully operated by local committees without any grant. The
entire operating cost is generated from the tariff collected from users. (ii) Regarding Capex, the GPs
contribute 15% and BGs contribute 10% in cash. KRWSA provides 75% of the capital cost as grant through
Bank funding. (iii) The assets are jointly owned by GP and BGs, while technical support for design and
implementation is provided by KRWSA. (iv) KRWSA has also successfully tested the ‘Bulk Water Model’
wherein KWA is paid for water supplied at one outlet while BGs take distribution responsibility and cost
recovery. This model is being followed in 3 Multi GP schemes, and 15 Bulk water schemes.

4.2.2 Impact of 2018 Floods

The flood in August 2018 has severely affected water supply services crippling access to safe drinking
water during and after the flood. Total damage to the water supply subsector is estimated at Rs. 492.3
crore, 77% of which is to shallow dug household wells, 11% to KWA rural schemes, and 6% each to KWA
urban schemes and Jalanidhi schemes.
Many water supply schemes were damaged mostly due to silting of sources, damage of intake structures,
pump houses and distribution networks, and damages of other structures. Damage has been reported in
108 urban and 372 rural schemes under Kerala Water Authority (KWA), and 583 rural schemes under the
Jalanidhi project.

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The KWA estimates 58% reduction in daily production during peak flood period, indicating that
approximately 50% to 60% of piped water users (20% of the State’s population or 6.7 million people) have
been affected. This has been gradually restored to pre-flood status.
Damage and Loss – As per the Kerala Floods 2018 Post-Disaster Needs Assessment (PDNA), the total
damage and loss, and recovery needs for this sector estimated to be as follow –

Damage Loss Total Effect Total Recovery Needs

(Rs. crore) (Rs. crore) (Rs. crore) (Rs. crore)

492 349 841 766

It is reported that 3,20,026 shallow wells have been damaged in the six worst affected districts,72directly
affecting more than 1.4 million persons; the structural damage occurred to the inner linings, parapet walls
and aprons of these wells. Water in many shallow wells was contaminated. Some of the wells have since
collapsed during the cleaning process, due to over-pumping whilst emptying the well. Amid disruptions
to routine operations, the LSGD was able to issue cleaning guidelines for wells, as well as certifications for
cleaned wells, in support of restoring services. Cleaned wells took time to stabilize their physical water
qualities, which means people relying on these wells had to look for other water sources. This created
additional demand on piped water systems already damaged and with compromised capacity, or on
emergency water supply. The Status report on the cleanliness drive carried out by LSGD reports that out
of the 3,20,026 wells damaged, 3,00,956 were cleaned. (94%). Out of this, 17% were reported to be
dewatered and super chlorinated.
Many rural colonies, which are in low lying areas, including those where Scheduled Castes and Scheduled
Tribes communities lived were inundated during floods for many days resulting in contamination of
groundwater. Floodwaters affected drinking water sources and sanitation facilities, putting citizens at
serious health risk. In Kerala, majority of the households do not have water supply and thus access to
drinking water and water for domestic use has become a challenge, particularly for women who take care
of water needs for the families.
Additionally, at many locations along the rivers of Kerala, permanent and temporary cross and check dams
are constructed for irrigation or water supply intake, often without regard to the resulting obstruction of
higher discharge which can increase river levels upstream and cause unwanted flooding. For example, the
drainage channel system of Kuttanad is poorly maintained and silted, thus reducing drainage discharge
capacities towards the Thottappally Spillway which itself has limited capacity of 380 m3/s.
Immediate Recovery Efforts: Despite being severely affected by the disaster, KWA continued to supply
water in low lying areas in Kuttanad for several weeks because the wells were contaminated. About 1.1
lakh jerry cans of 15 litre capacity each were distributed to households for storing water. Around 1,000
water purifiers were supplied free of cost.
Some preliminary recovery activities as suggested in the PDNA include- in the short-term, mitigating the
heavy dependence on shallow wells and build resilience in household dug wells. The departments of water
and health, together with LSGD, could form a joint mechanism to rehabilitate/improve wells, setting clear

72
Flood Sanitization status in LSGIs as on 20 september 2018.

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guidelines to ensure that the investment serves the objective. The out-of-order water systems under
KWA, Jalanidhi, and LSGB, or those that are operating at a reduced capacity, should be repaired and made
flood-resilient. In medium-term, a range of sustainable and disaster-resilient technical options could be
explored to improve safe water access. A water-quality surveillance system could be set up and led by the
WASH coordination platform and could include private and institutional water quality laboratories. The
data should be stored digitally, accessible by all the stakeholders. A critical check of the required capacity
in the location vis-à-vis supply opportunities would avoid unnecessary excessive costs for overcapacity
and unsustainable over-pumping, especially for systems managed by water utilities, communities or
LSGBs. In the long-run, a set of water governance rules could be developed that build upon the integrated
water resource management, and eco-sensitive and sustainable solutions. This RKDP further develops on
the suggested sector recovery activities proposed in the PDNA through detailed analysis of the root causes
and through consultations with public and relevant stakeholders.

4.2.3 Major Legacy and Current Issues

1. Policy gaps: The State water policy (2008) does not envisage any target for PWS coverage, or service
delivery parameters, including hours of supply, quantity of supply and metering. However, the State
has an objective of 100% coverage at 100 lpcd for rural and 150 lpcd for urban areas as reported by
KWA. If the projects in the pipeline are completed, the supply capacity will be increased to 176 lpcd,
which is quite high to meet the targets and needs to be reviewed taking into consideration the uneven
spread across the State.
2. Limited co-ordination among sector institutions: With different sector institutions operating under
different models, there is limited planning and co-ordination among KWA, KRWSA, and LSGD. Also,
ownership by local governments is reportedly limited due to inadequate technical and financial
capacity and lack of incentives to improve connections and service delivery.
3. Weak regulation and monitoring: A number of agencies including KWA, KRWSA, ULBs and GPs are
currently providing services with fragmented responsibilities and weak regulatory systems. The GPs
and ULBs promote small water supply schemes mainly to address issues in summer months when
most wells go dry. Together with Jalanidhi schemes, most of these schemes remain in the hands of
beneficiaries with no backstopping support (technical or financial) or monitoring by any agency.
Following point may be added “The existing norms and rules on rain water harvesting is loosely
implemented and not monitored. The development of natural spring-based water sources which also
needs adequate emphasis.
4. Little investment on supporting Self-Supply: More than 60% of the population is dependent on dug
wells for drinking water, making it the dominant water service delivery of the State. However, there
are little institutional investments to make these dug wells sustainable and sanitized.
5. Build-forget-Rebuild approach to infrastructure: The lack of any financial support, beyond
contributions by local communities, results in several schemes slowly becoming defunct. Also,
performance monitoring has not been taken up to better understand the scheme level issues. Life
cycle cost approach to asset management be followed recognizing water as an economic good
reconciling the reality that people particularly the poor are paying more by way of coping costs, when
there is service delivery failures.
6. Lack of clarity on revenue enhancing programme: As per KWA estimates, the State has an installed
water treatment capacity of 3016 MLD, but only about 26088 MLD of water is being produced. The
KWA is adding another 1832 MLD of treatment capacity from ongoing schemes. Given the excess

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 capacity issues, there is lack of clarity on the strategy for revenue enhancing programme through
increasing collection efficiency, tariffs, use of subsidies from State budget, etc. Also, policy changes
would be required in the connection policy, including subsidies, to raise demand for household
connections, etc.
7. Contamination of water sources: As per IMIS database maintained by GoI’s MDWS, and based on a
sample study, around 95% of the sources are contaminated. Of these, 85% of sources have
bacteriological contamination and 15% have chemical contamination. Coliform contamination is
found mostly in the well water and surface sources (95% of the sample) and limited in PWS (1% of the
sample). Boiling of water is the standard practice of treatment adopted by most households in Kerala.
About 85 % of the households boil water and around 8 % of the households use water filters or
purifiers (NFHS 2016). The system in place to carry out the sanitary risk assessment of the dug wells
is inadequate. The current process of monitoring and surveillance is fragmented and not participatory
in nature. Private dug wells are outside the ambit of the existing surveillance systems lead by KWA.
8. Water Charges / Tariff: The policy aims that the water charges shall be fixed in such a way that they
cover at least the O&M charges for providing the service, while subsidy for the poorer sections will
continue. Kerala follows a block volumetric tariff structure for charging for water, with the lowest
block for domestic users starting from 5 KL, and the rate ranging from Rs. 4 /KL to Rs. 50 KL. GoK has
made water free for BPL families consuming less than 15 KL per month. While the water tariff for KWA
is fixed by the State government, it is not built on full cost recovery principles and the State budget
has not always provided subsidies on an assured and timely basis, with a negative impact on KWA’s
financial position.

9. Low O&M cost recovery: KWA has estimated that O&M Cost of production Rs. 24 per KL
cost per KL of water is around Rs. 24, whereas average
revenue is Rs. 16 per KL. The gap weakens the financial Revenue from sale Rs. 16 per KL
sustainability of the institution and the considerable of water
investments in water supply unless key reforms are
implemented to enhance revenue and operational Loss Rs. 8 per KL
efficiency. There is need for transparent subsidies, as full
cost recovery through tariffs is unlikely. Also, most cities and villages have about 40 to 45% Non-
Revenue Water.
10. Source sustainability risks due to climate variability: Declining ground water levels and high variation
of rainfall over the years have increased vulnerability, with many dried wells getting inundated during
the floods. Several small schemes in rural areas are dependent on local sources like open wells. These
small schemes need to be connected to surface water supply schemes for secured water supplies
during summer.
11. Inadequate monitoring of sector performance: The sector information is presently scattered among
different institutions with no standard mechanism or benchmarking to monitor the performance on
service delivery. KRWSA has recently developed a monitoring system for service delivery for its
schemes and this can be scaled up across the State.
The Following issues need urgent attention: (a) identifying a menu of different institutional and service
delivery models, (b) incentivizing service delivery improvements and infusing business sense, (c)
addressing the staff costs including pay revisions and pension liabilities, (d) addressing depreciation cost
of assets created, (e) convincing trade unions which protect service conditions, salaries and pensions, (f)
building capacity of ULBs and GPs, (g) levelling playing field for financially viable and not so viable schemes,

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(h) addressing water pricing in a holistic manner, including different tariffs in different local bodies with
political acceptance.

4.2.4 Proposed approach to Resilient Rebuilding

Following are the critical needs and priorities for the Water Supply Sector:
 A systematic approach is needed to convert household open wells to safe and protected water
sources.
 Rather than institutional focus, there needs to be holistic approach to “water”. Setting up of a State
Level WASH platform, integrating the efforts institutions mandated to work on drinking water,
sanitation, Solid and Liquid Waste management and Hygiene promotion. It needs to encompass
surface water treatment and supply, dug wells, natural springs, rain water harvesting, SLWM and the
SBCC campaign required for active public participation and ownership. Terms of Reference for such a
coordination platform need to be prepared detailing the roles and responsibilities of different
agencies. It should include development of integrated plans, performance monitoring, integrated data
collation and sharing and regulatory systems.
 An integrated and participatory approach to “Drinking water quality monitoring and Surveillance”
needs to be put in place.
 Increasing accountability of Water Supply agencies, including performance-based financing and
service delivery-based contracts, using service level benchmarks provided by the Ministry on quantity,
quality, O&M cost recovery, Non-Revenue Water, establishment of robust grievance redressal
mechanism etc.
 Ring-fencing Water Supply operations for greater transparency and better understanding of efficient
and loss-making schemes.
 Exploring institutional and service delivery models for improving commercial orientation and financial
sustainability.
 Revising volumetric tariffs to improve revenue stream, taking into consideration affordability limits.
 Incentivizing efficient operations and reducing subsidies, especially power subsidies.
 Increasing customer orientation by improving MIS, citizen charter and Grievance Redressal
Mechanism.
 Auditing of assets from climate change perspective to ensure that the designs of all ongoing and
proposed works are built with resilient measures based on the lessons learnt.
 Better understanding of financial aspects, including costs, revenues, tariffs and subsidies.

4.2.5 Specific Interventions

Following are the proposed Investments in Water Supply over next five years:
1. KWA has proposed additional investments of Rs. 3,388 crores and KRWSA has proposed additional
investment of Rs. 870 crore mainly to enhance number of connections and service standards, thereby
also improving the revenue base of KWA and KRWSA. Summary of these proposed investments are
given below.

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  Urban: KWA proposes to build 10 new WTP schemes covering 10 municipalities with treatment
plants and distribution components, with an estimated cost of Rs. 800 crores. Seven existing
schemes require distribution components worth Rs. 276 crore, while production and transmission
components have been completed. Eight schemes require transmission and distribution
components worth Rs. 649.00 crore, while production components have been completed. Thus,
the total proposed investment in urban areas is Rs. 1725 crore. While these schemes are
predominantly urban, they will also supply water to some GPs.
 Rural: 12 schemes require distribution components worth Rs. 570 crore, while production and
transmission components have already been completed. 17 schemes require transmission and
distribution components worth Rs. 1093 crore, while production components have been
completed. Hence the total proposed investment by KWA in rural areas is Rs. 1663 crore. In
addition, KRWSA proposes investments worth Rs. 870 crore, for which KWA will provide bulk
water supply, while KRWSA will build capacity of local governments and community organizations
to manage distribution networks.

2. These investments in urban and rural areas will make use of about Rs. 3000 crore worth assets, which
were already created and underutilized. It is proposed to complete these investments in the next two
to three years. It is also proposed to adopt advanced technologies in the distribution network and
metered house connections aiming for achieving NRW benchmarks. These investments will mostly
cover places declared flood affected, benefitting about 4.4 million people living in 26 ULBs and 160
GPs.
Table 19: Water Supply Actions and Results Framework

Activities 0-6 months 0-18 months 18 months Expected

& beyond Outcomes

Policy /Regulatory/Institutional

 The GoK has adopted a strategy and a . Increased coverage

time-bound action plan to strengthen and improved
policy and institutional framework to quality of water
improve accountable and efficient X supply
services for water supply management management
which are resilient to disasters and services in urban
impacts of climate change. and rural areas.
 Establishment of an intersectoral Baseline (January
WASH coordination platform at State 2019): Inadequate
level policy and
institutional
 GoK adopts policy and institutional
framework for
framework for accountable and
WSS sector.
efficient water supply services (urban X
and rural) including MIS and Grievance Target (June
Redress Mechanism and Citizen 2021): (i) Improved
Engagement Programme. Water Supply
services for at least

134
 Activities 0-6 months 0-18 months 18 months Expected
& beyond Outcomes
XX% targeted
people; (ii) NRW
X
reduced to at least
30%; (iii) O&M cost
recovery increased
to at least 70%; (iv)
Annual
Performance
Report and Citizen
Report Cards
publicly disclosed.

 Chart out a strategy for ensuring the Panchayat wise

quality of drinking water from dug digital inventory of
X
wells and natural springs that is dug wells and
participatory in nature spring sources (geo
coded) with
 Design an institutional framework to
sanitary risk
implement the strategy X assessment scores

 Setting up of WASH sectoral System in place for

coordination platform. carrying out
X
participatory water
quality monitoring
and surveillance
system.

Investment

 Water Supply by KWA 3.7 million

additional
X
population
benefitted in 26
ULBs and 99GPs
with enhanced
service delivery.

0.7million
 Water Supply by KRWSA additional
population
X benefitted in
61GPs with

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Activities 0-6 months 0-18 months 18 months Expected
& beyond Outcomes
enhanced service
delivery.

Table 20: Proposed Investments of Kerala Water Authority (Water Supply)

No of
No of Potenti
Description/ Additional Benefitted
Urban Time al WS
Activity of the Districts benefitted Schemes Population LSGD
/Rural Period connect
Investment benefitted
ion
Urban Rural

Municipalities
(districts): Kanjangadu,
Neeleswaram
(Kasaragod), Pyyoli
New Schemes (Kannur), Koduvalli,
including WTP Mukkam (Kozhikode),
3-4
and distribution Kottakkal , Valanchery 10 400,000 80,000 10
years
systems (for 10 (Malappuram),
Municipalities) Cherpullassery
(Palakkad),
Vadakkanchery
(Thrissur),
Erattupetta(Kottayam),

Ongoing
Schemes:
Distribution
1 scheme each in
components
Urban Alleppey, Kottayam,
(Production and 2 years 7 141,732 29,350 7 6
Ernakulam and 4
transmission
Schemes in Palghat
components
already
complete)

Ongoing
Schemes:
Distribution
1 scheme each in
components
Kollam, Malappuram,
(Production
2 years Calicut, Wayanad, 8 1,236,539 133,200 9 13
components
Kannur, Kasaragod and
complete and
2 schemes in Idukki
transmission
components
ongoing)

Sub total 25 1,778,271 42,550 26 19

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 No of
No of Potenti
Description/ Additional Benefitted
Urban Time al WS
Activity of the Districts benefitted Schemes Population LSGD
/Rural Period connect
Investment benefitted
ion
Urban Rural

Ongoing
Schemes: 1 scheme each in
Distribution Kasaragod, Kottayam,
components Palakkad, two schemes
(Production and 2 years each in 12 786,254 99,950 32
transmission Thiruvananthapuram,
components Ernakulam and 5
already schemes in Kollam
complete)

Ongoing 1 scheme each in

Rural
Schemes: Ernakulam, Kasaragod,
Distribution Kottayam,
components Malappuram,
(Production Thiruvananthapuram,
2 years 17 1,197,909 134,600 48
components two schemes each in
complete and Kannur, Palakkad,
transmission Thrissur and 3 schemes
components each in
ongoing) Pathanamthitta, Kollam

Sub total 29 1,984,163 34,550 0 80

TOTAL of KWA
54 3,762,434 477,100 26 99
proposed

Table 21: Proposed Investments of KRWSA (Water Supply)

No of
Urban Description/ Additional Potential Benefitted
Time No of
/ Activity of the Districts Population WS LSGD
Period Schemes
Rural Investment benefitted connection
Urban Rural

Post construction
O & M support to
5 years 8 districts
the community
Schemes

Support to
revitalize
nonfunctional
decentralized
RWSS based on

137
 No of
Urban Description/ Additional Potential Benefitted
Time No of
/ Activity of the Districts Population WS LSGD
Period Schemes
Rural Investment benefitted connection
Urban Rural
the study
proposed

New Scheme:
Cheekodu Multi-
Village scheme to
provide
2-3 years Malappuram 1 101349 20270 7
distribution and
house
connections using
DBO approach

Nedumbasseri
and three other
GPs - Water
Augmentation
2-3 years Ernakulam 1 49496 9899 4
and house
Rural connections (with
bulk water from
KWA)

Providing 1,25,
000 household
connections in
rural in about 50
GPs where 2-3 years 8 districts 50 540000 108000 50
treated water is
available (with
bulk water from
KWA)

Total KRWSA 690845 138169 0 61

4.2.6 Technical Studies and Assessments

Table 22: Water Supply List of Studies

0-6 0-18 18 months

Activities
months months & beyond

Policy and Institutional

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 0-6 0-18 18 months
Activities
months months & beyond

Preparation of Policies and Institutional Programme for Water X

Supply:

(a) Institutional roles and responsibilities and performance X

standards;

(b) Analysis of ring-fenced administrative units of KWA; X

(c) Service delivery models for local bodies and KWA; X

(d) O&M Programme including tariff and subsidy analysis; X

(e) M&E, Citizen Engagement and Grievance Redressal Programme. X

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4.3 Sanitation

4.3.1 Introduction
Kerala is the third fastest urbanizing State in the country (AMRUT, State Annual Action Plan, Govt. of
Kerala, 2015). The reclassification of rural to urban due to shift in employment from agriculture to other
categories of employment also contributes to the high urbanization rate. About 17% of Kerala’s 35 million
population reside in 87 municipalities and 6 corporations, 65% in towns with populations between 20,000
and 100,000 and 35% in towns greater than 100,000 (Joint Development Needs Assessment Report, World
Bank and ADB, September 2018). The level of urbanization among the districts is uneven, with six districts
(Ernakulam, Thrissur, Kozhikode, Kannur, Alappuzha and Thiruvananthapuram) having urban population
more than 50%, four districts with medium level of urbanization (25 – 50%; Kollam, Malappuram,
Kasaragod and Kottayam) and four with low levels of urbanization (<25%; Palakkad, Pathanamthitta,
Idukki and Wayanad), AMRUT, State Annual Action Plan, Govt. of Kerala 2015. However, the infrastructure
facilities, especially sanitation, available to the population in general do not vary much between rural and
urban areas. It is of note however, that as per the last round of the National Sample Survey, some
households in Kerala, particularly SC and ST households are more likely to practice open defecation than
others. So, while only 2 % of Kerala’s population on average practices open defecation, it is more prevalent
among ST and SC households – nearly 14% of tribal households practice it, and 8% of SC households
engage in open defecation.

Kerala’s Key Projects and Programs in Sanitation

Waste to Energy Plants: The GoK, through LSGD, is in the process of implementing an integrated Solid
Waste Management solution for major cities which envisages to setup and operate Waste to Energy Plants
of minimum 5 MW capacity in seven sites across the State through Public Private Partnerships under
‘Design Build Finance Operate and Transfer (DBFOT)’ model. The projects will be implemented in seven
locations with beneficiary local governments grouped into clusters. KSIDC is the Nodal Agency for the
selection of the private partner and has initiated a global competitive bidding for Kozhikode, followed by
bidding for other six locations namely Thiruvananthapuram, Ernakulam, Thrissur, Palakkad, Malappuram
and Kannur.
Haritha Keralam (Green Kerala Mission) is an Umbrella Mission integrating components of Waste
Management, Organic Farming, and Water Resources Management. It has an ambitious outlook to
address the issues of piling waste, drought, and health hazards due to pesticide treated vegetables. It has
three Sub-Missions:
1. On Sanitation & Waste Management- Household level segregation and safe disposal of organic waste
through feasible options like composting, biogas, arrangements for institutional waste disposal, re-
use, recycling and safe disposal of non-degradable and electronic waste.
2. On Water Resources Rejuvenation & Conservation- Rejuvenation of tanks, ponds, streams and rivers.
Conservation of water and ensuring its timely availability for domestic and agricultural use.
3. On sustainable agriculture- Promotion of organic agriculture to produce safe to eat vegetables and
fruits.

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Suchitwa Keralam. Having achieved ODF status, the Suchitwa Mission now focuses on next generation
sanitation issues such as solid and liquid waste management and promotion of green protocol for
reduction of disposable and single use materials. Suchitwa Mission extends technical support to Local Self
Government Institutions in identifying issues, suggesting mitigation measures, preparing Detailed Project
Reports (DPRs) for construction of new waste treatment plants, up-gradation of solid waste management
facility, establishment of plastic shredding units, etc., for the management of non-biodegradables
including e-waste, development of sanitary landfill, community level composting/biogas units and
development of Regional Sanitary Landfill. The annual budget outlay for Swachh Bharat Mission is Rs. 183
crores including SBM and State contribution for Suchitwa Keralam of Rs. 52.5 crore (Source: Suchitwa
Mission).

Policies and Guiding Principles

In addition to The Kerala Water Supply and Sewerage Act, 1986, the Kerala State Sanitation Strategy
prepared with GIZ assistance and approved in August 2015 provides the policy framework for sanitation
services. The policy, modeled on the lines of the National Urban Sanitation Policy, articulates a vision to
safely manage Kerala’s solid and liquid wastes, with the following goals:
 Ensure all human excreta and liquid wastes are safely managed (sanitation intervention are
appropriate; attention to operation and maintenance)
 Enhanced awareness and sustained behavior change
 Improved institutional governance and enhanced human resources for citywide sanitation
Notable amongst the missing elements in the policy are:
 Technical, institutional and service delivery options for state-wide coverage
 Clarification of ULB responsibilities
 Infrastructure deficiencies and CAPEX and OPEX required to address the gaps
 Prioritization and phasing of investments to achieve the vision / goals of the sanitation policy
 Role for private sector participation
Integrated wastewater and septage management guidelines, also prepared by GIZ, provide a path to
operationalize the state sanitation strategy. These guidelines provide options for citywide integrated
wastewater and septage management services, technical options (limited to wastewater), financial
(limited to source of funds, viability gap funding), operations and maintenance and regulation. The draft
guidelines are in the process of being finalized in the next two to three months.
Policy on Solid Waste Management. To address challenges of waste management, the GoK released a
State Policy on Solid Waste Management on September 13, 2018, providing broad strategy to achieve the
vision of “a healthy, prosperous and resource efficient society in which waste are reduced, reused,
recycled and prevented wherever feasible and beneficial and disposed-off in an environmentally safe
manner”, with the following guiding principles.
 Waste will be considered as a resource
 3R principle of Reduce, Reuse and Recycle will be embraced
 Polluter pays principle will be adopted
 Responsibility of citizen to the waste he generates and right of the society to have hygienic
environment will be protected

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Institutions for Sanitation
Although the 74th Constitutional Amendment (1992) devolved powers and responsibilities for sanitation
to local government bodies, they continue to lack autonomy in functioning and are financially dependent
on the State government. Infrastructure is developed by a State Water Resources Department and
sometimes handed over to the ULBs and GPs to maintain. Multiple State-level agencies dominate
sanitation provision and there is little coordination, resulting in fragmentation of functions and
responsibilities and lack of accountability for services. Following are the key institutions involved with
sanitation activities:

(i) Suchitwa Mission under the Local Self Government Department is responsible for providing technical
and managerial support to the Local Self Governments of the State. It is also responsible for
conceptualizing, action planning, conducting creative workshops, organizing training programs, initiating
sector related studies, initiating action research, and conducting monitoring in Waste Management
Sector. The Mission is also the Nodal agency for implementing Swachh Bharat Mission (Urban), Swachh
Bharat Mission (Rural) and Communication and Capacity Development Unit (CCDU) in the State. Suchitwa
Mission is planning to develop two septage treatment facilities as training facilities to raise awareness and
build acceptance for septage management in the State.
(ii) The Kerala Sustainable Urban Development Project (KSUDP) under Local Self Government
Department is an initiative of the Govt. of Kerala and ADB is a special purpose vehicle (SPV) to implement
urban infrastructure services in a sustainable manner. The KSUDP is also designated as the State Level
Nodal Agency for the GoI programs –Smart Cities Mission and AMRUT. While KSUDP has experience in
planning and implementing sewerage systems, it does not have experience in septage management
facilities.
(iii) The Clean Kerala Company Limited has been set up under the LSGD with the objective of ensuring
hygiene management through innovative methods and public and private sector participation. The
company aims to ensure comprehensive waste management through disposal/reuse of plastics, e-waste
and other solid dry waste reject from the Municipal solid waste stream. Suchitwa mission has put forward
a proposal to make Clean Kerala Company to implement and manage the pilot septage treatment facility
and take a larger role in the management of septage treatment facilities.
(iv) Impact Kerala Limited under Transformation Kerala Limited was constituted in 2018 by GoK to
implement major infrastructure projects in Local Self Government sector. This agency is responsible for
key areas of sanitation and hygiene including Septage / Fecal Sludge Management, Liquid Waste
Management, Modern Slaughter houses /fish markets and Modern Crematoriums. However, this being a
new organization, it needs considerable strengthening of institutional systems and human resources.
(iv) The Kerala Water Authority73 (KWA) is the primary institution for the development and regulation of
water supply and wastewater collection and disposal in Kerala. By legislation, its mandate includes
preparation, execution, promotion, operation, maintenance and financing of schemes, monitoring
quality, fixing tariffs, etc., for drinking water supply and wastewater disposal. The KWA has executed
schemes in both rural and urban areas in the State, operations and maintenance of most of these
schemes, and planning, implementation and O&M for the few facilities created for wastewater treatment
in two ULBs. In addition, it has been a primary stakeholder in the execution of wastewater treatment
plants in Sabarimala and Guruvayur. In other ULBs where wastewater treatment facilities were proposed
under ADB-assistance, the execution of the project rests with the KSUDP and the facilities are expected

73
Established by an ordinance in 1984 and subsequently legislated by the Kerala Water Supply and Sewerage Act,
1986.

142
to be handed over to the ULBs. Clarity of roles vis-a-vis the KWA, ULB and the KSUDP in terms of
development of wastewater treatment and disposal has yet to be ascertained.
Institutions for Solid Waste Management
With the 73rd and 74th constitutional amendments, the GPs and ULBs are mandated with the responsibility
for Solid Waste Management. The local governments are supported by Local Self Government
Department (LSGD) and SPVs like Kerala Suchitwa Mission, Haritha Keralam Mission, Clean Kerala
Company, Kerala Sustainable Urban Development Project (KSUDP) and Kerala State Industrial
Development Corporation Limited (KSIDC) are involved in planning and implementing waste management
programs and projects.

4.3.2 Impact of 2018 Floods

The damages in the SWM subsector is estimated at Rs. 251.13 crore, about three-quarters of which is due
to the destruction of household-level SWM units. The total loss in the SWM subsector is estimated at Rs.
74.4 crore, of which 45% is attributed to household-level cleaning, another 31% to disposing of animal
carcasses, and the remaining 24% spent by urban and rural administrative bodies on cleaning public areas.
Although Kerala achieved the Open Defecation Free (ODF) status in Rural areas in 2016 and Urban areas
in 2018, the collection and treatment of wastewater and septage is limited. An estimated total of 95,146
household latrines have been substantially damaged due to recent floods, including 83,506 toilets in rural
areas and 11,640 toilets in urban areas, depriving about 400,000 people of sanitation services. Household
latrines have suffered the main brunt of the disaster. Invariably, the septic tanks and leach pits were the
most damaged in terms of structural stability and functionality. Excessive de-sludging was needed too. No
damages were reported for the piped sewage treatment systems which cover a small proportion of the
population. The recent flood affected drinking water sources and sanitation facilities have serious health
risks as most people (62%) use shallow wells for drinking water.
In Kerala, majority of the households have pit/septic toilets (on-plot Sanitation), which has become a
major source in contamination of groundwater during floods. It is also an inclusion challenge, as many of
these septic tanks tend to be cleaned by people from lower castes. The disaster raises the need for climate
resilient superstructure designs74 and containment systems including septic tanks and pits75 with
customized designs for water-logged areas. Given the high dependence of households on on-site
sanitation (78%; 57% septic tanksand 21% on pits; Census 2011), low levels of sewerage systems (partial
coverage in Thiruvananthapuram and Kochi), limited septage treatment facilities (one operational in
Kochi), there is growing interest in septage management with eight plants under construction and more
planned to improve sanitation services across the State. The technical understanding of “septic tank” in
the public is also a challenge. The 2nd generation issues of an ODF state like Kerala pertaining to the
quality of toilet substructure affecting the quality of ground and surface water has not been studied. As
such there are no reliable data collated on the type of toilet substructure adopted by the HHs in general
as well as in the difficult terrains. The current standard of latrine design and subsidies associated with
them would need to be revised. This, in turn, would have social and financial implications, as costs of
septic tanks or raised latrines with above-ground pits are substantially higher. Furthermore, damaged

74
The UN Post Disaster Needs Assessment (August 2018) highlighted the need to build flood resilient toilets suited
to the Kerala context
75
The UN Post Disaster Needs Assessment (August 2018) also suggested a campaign to be led by Suchitwa Mission
along with Local Self Government Departments to replace all pits (21% as per Census 2011) with septic tanks that
are resilient to floods and reduce risks of ground water contamination.

143
superstructures pose the risk of injuries and compromise privacy, particularly of women. The impact on
septic tanks and leach pits exposed long-term vulnerabilities in terms of ground water contamination,
vector breeding and releasing pathogens into the environment.
Damage and Loss – As per the Kerala Floods 2018 Post-Disaster Needs Assessment (PDNA), the total
damage and loss, and recovery needs for this sector estimated to be as follow –

Damage Loss Total Effect Total Recovery Needs

(Rs. crore) (Rs. crore) (Rs. crore) (Rs. crore)

147 48 195 289

Some preliminary recovery activities as suggested in the PDNA include - Flood-resilient latrines could be
designed with water-sealed septic tanks, and all damaged latrines should be rehabilitated or replaced
following this design. Increased costs may be a challenge for creating demand, but the government may
encourage suppliers with regulatory and financial incentives. The Suchitwa Mission could hold awareness
campaigns for the public on the importance of the latrine model. Financial compensation should be
considered for at-risk and low-income households who will require retrofitting of latrines. The SWM
systems could consider a decentralised approach and follow the principles of reduce, reuse, and recycle.
An interim coordination mechanism for water supply, sanitation, and SWM could be established, serving
as a technical actor, and taking on board civil society actors, international agencies or advisory companies.
Establishing off-site and decentralised faecal sludge management is a priority due to the substantial
number of household toilets with septic tanks and the limited capacity of sewer systems in the State.
Setting up decentralised SWM systems could be taken up as part of the building back better strategy for
a green and eco-resilient Kerala. A WASH sector coordination platform could be established under the
WRD or LSGD, where all actors and stakeholders are represented. Ultimately, solid and liquid
management systems could have a state-level strategy and system, which further builds upon the
principles of ‘waste to energy’ and ‘waste to resources’. This RKDP further develops on the suggested
sector recovery activities proposed in the PDNA through analysis of the root causes and through
consultations with public and relevant stakeholders.

4.3.3 Major Legacy and Current Issues

Contamination of ground and surface waters is a serious concern in Kerala. Notable among the reasons
for widespread contamination are siting and poor construction of septic tanks and pits, which have the
potential to cross-contaminate ground water by pathogenic bacteria, viruses, and several more complex
multicellular organisms. Studies76 have indicated that more than 90 % of the shallow dug wells are affected
with bacteriological contamination in Kerala. Also, some studies77 indicate that 56 % of the contamination
cases are due to unscientific construction of latrines, 11 % due to animal sources and 33 % due to both

76
Harikumar PS. 2016. Water quality management of Kerala- Issues, Challenges and Solutions, Rep. Working Group
on Environment, Kerala State Planning Board. p. 9.
77
Harikumar PS and Kokkal K. 2009. Environmental monitoring programme on water quality. Kerala State Council for
Science, Technology and Environment, Govt, of Kerala. 174p

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latrine and animal sources. Additionally, indiscriminate disposal of emptied septage for want of treatment
facilities has the potential for environmental degradation.
The situational diagnostic reveals the following:
(i) Access (household/community sanitation): According to Census 2011, in urban areas, 2.6% of
households had no toilets in their households. About 0.9% of urban population depended on community
/ public toilet, and 1.7% defecated in the open. In rural areas, 6.8% of households had no toilets in their
households. About 1.2% of rural population depended on community / public toilet, and 5.6% defecated
in the open.
Under SBM a total of 37,207 individual household toilets and 3,449 toilet seats in community toilets were
constructed, ensuring universal sanitation access and rural Kerala being declared “open defecation free”
in 2016 and urban Kerala in 2018. However, the floods of 2018 led to 11,640 toilets in 44 ULBs and 83,506
toilets in Gram Panchayats being rendered dysfunctional or destroyed (Suchitwa Mission).
(ii) Collection and Treatment: Having addressed universal access to household sanitation, there is need
to address the full cycle of sanitation from collection to treatment and disposal. While 8% of the urban
households are connected to sewers78, 78% of urban households are dependent on on-site sanitation
comprising 57% septic tanks and 21% pit latrines, which are usually cleaned by persons belonging to lower
caste groups. As reported by Suchitwa Mission, around 48 % of the rural households have septic tank
(again, appropriate septic tank technologies may be compromised) while others are mostly leach pit
latrines (single pit or two pits).
(iii) Sewerage Systems: Sewerage systems are presently limited to Thiruvananthapuram with 37% spatial
coverage and 91,300 connections, Kochi with 3% spatial coverage and 4,500 connections (State Annual
Action Plans 2015 – 16, Govt. of Kerala, 2015) supported under the ADB funded Kerala Sustainable Urban
Development Programme (KSUDP)79. Planned investments in Thiruvananthapuram, Kollam, Alappuzha,
Kochi, Thrissur, Palakkad, Kozhikode and Kannur will help create 29.77 MLD sewage treatment plants with
potential to benefit 1.14 million. The existing and planned investments will meet 20% of the sanitation
needs of the State.
Although sewage treatment plants of 107 MLD and 5 MLD are functional in Thiruvananthapuram and
Kochi, they are operating at 51% and 60% of plant capacity mainly due to limited sewer network coverage
and/or reluctance of households to connect to the sewer networks, having invested in on-site sanitation
systems like septic tanks. Households are required to pay Rs. 1,000 for a sewer connection, bear the
plumbing cost and road restoration charges to connect to the sewer network. In addition, households are
required to pay the sewerage charges (10% of water charges, applicable in Thiruvananthapuram). The
sewerage charges meet 25% of the sewerage system (network + sewage treatment plant) operation and
maintenance cost, while the rest is met through state subsidies.
(iv) Non-network sanitation: As the available and planned sewerage infrastructure has been established
to meet adequacy of only 20% urban households, other households in urban and rural areas rely on on-

78
While the Census 2011 enumerated 518,633 households connected to piped sewer systems across all villages and
towns in Kerala, this is believed to be an over-estimate. Sewer systems with treatment plants are reported only in
Thiruvananthapuram and Kochi Municipal Corporations, with 52,000 and 2,6500 connections respectively in 2017.
Also, the number of connections in Thiruvananthapuram have increased after 2013 when the new STP was
commissioned.
79
ADB -Project Completion report 2018 and information collected from KSUDP

145
site sanitation where waste water is primarily disposed to septic tanks and pits80 within the house
compound premises. Septage management - emptying the filled up septic tank, transport and treatment
of the sludge - is primarily viewed as a private operation in Kerala. In most cases, the construction and
maintenance of septic tanks is entrusted to private agencies. The services towards emptying of septic
tanks as and when required by households is mostly provided by the private sector, with some of the
larger ULBs also operating septage-emptying trucks.
An evaluation of the status of septage generation and management in Kerala (Economic Review, 2017-
2018) indicates that the excreta confinement capacity of septic tanks and latrine pits vary considerably
depending on the terrain, land availability, and financial aspects of the household. For instance, the size
of the septic tank in individual houses ranges from 1 to 4 m3 and that in a public office premises or
apartment buildings from 10 to 100 m3. Generally, the frequency of emptying septic tanks varies from 2
to 10 years depending on the volume, usage and awareness of the need for desludging. The latrine leach
pits are emptied once in 10-20 years when the pits get filled and become unusable. Generally, in low lying
and coastal areas, the depth of the leach pit is restricted due to groundwater table and desludging
becomes necessary in shorter frequency. The total volume of septage/faecal sludge that needs to be
emptied from septic tanks or leach pits every day in Kerala is estimated at about 7,966 m 3. It is also
estimated that urban areas in 6 of the 14 districts (Trivandrum, Alappuzha, Ernakulam, Thrissur, Kozhikode
and Kannur) account for 70 % of daily septage clearance demand. In other districts, the generation is far
higher in rural areas compared to urban areas.
The mechanical desludging operations currently remove about 500 m3/day of septage/fecal sludge in the
State. A septage treatment plant of 100 m3/day capacity (constructed under KSUDP) functional at Kochi
and the sewage treatment plant at Thiruvananthapuram receive part of the septage/fecal sludge for co-
treatment with sewage. Additionally, 8 septage treatment plants, each of 100 KLD capacity, are planned
in Kollam (3 plants) and one each at Alappuzha, Guruvayur, Thrissur, Palakkad and Kannur under AMRUT.
Though the treatment plants when completed and operational have a potential to benefit 2.9 million
people taking into consideration cities and villages within 10 kms for economical transport of septage to
treatment facilities, the benefit to cities where these interventions are planned is 1.3 million or about 30%
of all urban households. Although households on an average pay Rs. 3,000 - 4,000 for emptying septic
tanks, the emptied septage, for want of treatment facilities, is discharged illegally contaminating ground
and surface water sources.
Opportunity for Private sector participation: Informal private sector mostly provides for emptying and
conveyance of septic tank / pit contents across the State. Taking into consideration about 60% of
households dependent on septic tanks, a potential business of Rs. 342 crore is available.81 However, there
is need to regulate this sector and enable incentives to prevent indiscriminate dumping of emptied septic
tank / pit content. There is also opportunity for private sector to operate and manage septage treatment
plants, piloted by LSGD (Suchitwa Mission / Clean Kerala Company / Impact Kerala). The learnings could
be replicated across the State for planned and proposed septage treatment facilities. Private sector could
also play a role in the management of lift stations (sewer networks) and sewage treatment plants.

80
According to the Kerala State Sanitation Strategy about 97 % of urban households in the state have a toilet within
their residential premises. Of these, 57 % are connected to septic tanks, and 22 % to pit latrines. Households with a
connection to a centralized sewer system comprise about 14 % of the population.
81
Considering 20% serviced through network systems, an emptying frequency of once in 5 years and emptying
charge of Rs. 3,000/emptying.

146
Solid Waste Management
Challenges: Total solid waste generated in Kerala is 3.7 million tons annually which includes 1415 tons per
day (tpd) of waste generated by six City Corporations, 4523 tpd by 87 Municipalities and 4106 tpd by 941
Gram Panchayats. In addition, Kerala annually generates around 38100 tons of slaughter waste, 83000
tons of hospital wastes and 71,000 tons of industrial hazardous waste. Managing this huge quantity of
waste has been recognized as a major challenge for the State. Absence of disposal and recovery facilities
have adverse impacts on environment and public health with increasing incidence of communicable
diseases. It also affects tourism by adversely affecting aesthetic and hygienic environment.
For the past three years, a good lot of campaign and action programmes had been undertaken all
throughout the State for creating awareness among public and promoting them to use decentralized
waste management systems covering segregation of waste at its source, decentralized management of
biodegradables at homes or in community composting units. Remarkable efforts were undertaken for
removing solid waste dumps from the streams and rivers, where it was obstructing the natural flow.
Preliminary systems for collection and safe disposal of various types of non-biodegradable waste were
also tried out in many LSGIs. However, furthering these efforts and sustaining the results is challenge of
the day.
Thus, while ongoing efforts are visible to enhance infrastructure facilities for sanitation and waste
management in Kerala, the sector has the following challenges:
 August 2018 floods damaged / destroyed 11,640 toilets in 44 ULBs and 83,506 toilets in Gram
Panchayats which when reconstructed need to be flood resilient.
 Kerala needs more septage and sewerage treatment plants. Currently only .07% of grey water
generated is being treated and put into reuse.
 Septage treatment plant of 100 KLD capacity operational in Kochi. 8 septage treatment plants each of
100 KLD capacities planned under AMRUT, which can cater to 30% of urban households. Resistance
from residents to sewage / septage treatment plants hindered efforts to improve sanitation as per
ADB project completion report, July 2018.
 Emptying, collection and conveyance of septage mostly provided by the private sector and some ULBs
(especially larger ULBS)
 Lack of clarity in roles and responsibilities of institutions in the delivery of sanitation and waste
management services.
 Lack of clarity amongst ULBs and private sector septic tank emptying operators in collection,
conveyance and disposal.
 Resultant pollution of water bodies and open areas due to unsafe disposal of fecal waste after
emptying from septic tanks.
 Decentralized management of bio-degradable wastes, grey water treatment and collection,
segregation and safe disposal of non-degradable waste from domestic sector, commercial institutions
and public spaces.
 Proven and economic technology options for centralized management of solid waste, suitable for the
specific features of the State.
 There is no institutional set up to address the issue of E waste.

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4.3.4 Proposed approach to Resilient Rebuilding
Strengthening Sanitation and Waste Management Programme: The GoK needs to strengthen the State
sanitation strategy, including integrated wastewater and septage management guidelines, for increasing
coverage and improving services (Urban and Rural). Suggestions include the following:
1. Clarification on roles, responsibilities, and service delivery models
2. Role for private sector participation
3. Options and approaches for expanding household connections to sewers
4. Recommendation of sewage treatment and septage technologies with low land use and energy foot
print
5. Models for septage treatment including co-treatment of septage in sewage treatment plants, cluster
approaches for servicing cities / towns, standalone septage treatment plants
6. Amendment of ULB rules and regulations to facilitate scheduled desludging
7. Estimating the financing requirements including CAPEX and OPEX
8. Preparing a Road-map for Implementation

4.3.5 Specific Interventions

The total investments required for septage management in urban and rural areas over next five years is
estimated as Rs. 2750 crores which is likely to generate a business opportunity of Rs. 942 crores, detailed
below.
Urban: About 20% households in urban areas are likely to access sewerage systems taking into
consideration existing and planned investments. It is therefore important to address the faecal sludge
management requirements of remaining 80% households (1.14 million) through septage management
facilities involving collection, transportation and treatment. This is likely to generate a potential business
opportunity of Rs. 342 crores82 through private service providers over next five years, using existing and
planned treatment facilities. The investment required to create facilities to treat this waste would be
around Rs. 1000 crores83.
Rural: As per report of Suchitwa Mission, around 48 % of the rural households have septic tanks while
others are mostly leach pit latrines (single pit or two pits). Starting with an estimate of about 30% of rural
households requiring septage management services over the next five years (2 million households), it
would generate a potential business opportunity of Rs. 600 crores for collection and transportation of
faecal sludge. The investments required to create facilities for treating this waste would be about Rs. 1750
crores.

82
Servicing onsite units once in five years @ Rs. 3000
83
Estimated per capita cost of treatment is Rs. 1750

148
 Table 23: Water Sanitation Actions and Results Framework

Activities 0-6 0-18 18 months Expected Outcomes

months months & beyond

Policy /Regulatory/ Institutional

The GoK has adopted a strategy and a X Increased coverage and

time-bound action plan to strengthen improved quality of
policy and institutional framework to sanitation and waste
improve accountable and efficient management services
services for sanitation and waste in urban and rural
management which are resilient to areas.
disasters and impacts of climate change
Baseline (January
and are sensitive to the needs of
2019): Inadequate
populations like the SCs and STs who
policy and institutional
lack sanitation services more than
framework for
others.
Sanitation sector.
Kerala’s State Sanitation and Waste
Target (June 2021): (i)
Management Strategy and Programme
X Improved Sanitation
adopted by the GoK.
services for at least
XX% targeted people.

Setting up of a inter sectoral WASH Integrated information

coordination platform of all govt and data base on
X
stakeholders working in drinking water WASH. Better
supply, sanitation, waste management institutional
and hygiene domain. collaboration.

Twin pit/Septic tank/Bio-digester toilet Sustainable toilet

to be made mandatory depending on substructures address
X X
terrain conditions such as deepwater the issue of ground and
table area, low lying land, water-logged subsurface water
areas etc. contamination.
Sanitization of dug
Scientific study on mapping the X wells
appropriate toilet technology specific to
the region.

Investments Planning

 Sanitation infrastructure for septage X 80% of the urban

management (Rs. 2750 crores) population and 30% of
rural population access
safe fecal sludge
management

149
 Activities 0-6 0-18 18 months Expected Outcomes
months months & beyond
Sanitation- Collection and
transportation of septage (Rs. 942
X Improved connectivity
crores
of primary, secondary,
 Investment programme with additional and tertiary drainage
funding to be established for storm X systems to prevent
water drainage in ULBs. Current issues clogging and pollution
identified of water bodies

4.3.6 Technical Studies and assessments

The list of studies to be carried out to support the above policy, institutional and investments activities is
provided below.
Table 24: Water Sanitation List of Studies

18
0-6 0-18
Activities months &
months months
beyond

Policy and Institutional

Preparation of Policies and Programme for Sanitation and Waste

Management: X

(a) Institutional roles and responsibilities and medium-term

X
programme

(b) Cost-effective sewerage and septage management programme

X
and service delivery models

(c) Solid waste management programme X

(d) M&E, Citizen Engagement, and Grievance Redressal Programme X

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4.4 Urban

4.4.1 Introduction
Kerala has been urbanizing more rapidly than the national average. In ten years (2001-2011) the
percentage of urban population nearly doubled, with an Annual Growth Rate of urban population of 6.5%.
This makes Kerala the second most rapidly urbanizing state in India, with 65% of the population
concentrated in mid-small sized cities (20,000-100,000 people) and the remaining 35% are in bigger cities
(100,000+ people).
Though the population density of the State as a whole is high among Indian states, the population density
of urban agglomerations in Kerala is less when compared to UAs of other States. Population density
variation is seen within the urban agglomeration also. The analysis of change of population of the core
and fringe of urban agglomerations in Kerala shows that the core is either in stagnation stage or even
exhibit negative growth, whereas fringes grow at a higher rate. The fringe areas of the urban
agglomerations are having lower density than the core and the fringe areas are in a transitional stage (in
to the density of the core). This indicates the scope for further densification of the urban agglomerations
of the State.
Kerala is one of the leading states in the implementation of 74th CA, but access to basic services at the ULB
level continues to be a challenge. Following the 73rd and 74th CAs, in 1994 Kerala passed the Panchayat
and Municipal Acts mandating the establishment of panchayats (rural local bodies) in the rural areas and
municipalities in the urban areas, and devolving 26 out of 29 functions, and 17 out of 18 functions
respectively. Despite Kerala’s decentralized service delivery set-up and progress on reforms, the State has
not yet been able to tap on the potentials of rapid urbanization nor turned its cities into key economic
drivers. According to Kerala’s 2016 AMRUT State Action Plan and 2014 ASCI report, the coverage of all
urban services including access to drinking water supply, waste water management, solid waste
management, storm water drainage and municipal roads are below acceptable limits. In terms of access
to piped water supply, only 35% of the urban households have access, which make it the fourth lowest
state of the country at 50% coverage of the national average (from Census 2011) and the supply to
households is limited to an average of 3-6hrs a day. Access to piped sewerage network remains in the
range 5-30% across ULBs, with a substantially high dependency on soak pits/septic tanks for which there
is no proper fecal sludge management system. Likewise, the solid waste management services are very
limited - almost all the ULBs are lacking sustainable treatment and disposal facilities with partial waste
collection systems. Inadequate waste water management and solid waste management services are not
only affecting the quality of life in urban areas, but also the water bodies surrounding the urban areas
(back waters), which are valuable cultural and heritage assets of huge economic value as a core tourist
attraction. Likewise, unplanned and inadequate storm water drainage systems limit the city’s ability to
face and manage flash flood events, which are on the rise due to erratic monsoon patterns.
On the fiscal side, local government finances have been expanding in the last decade, but municipal
revenues are far from being sufficient for addressing the priority basic municipal investment needs, let
alone building climate resilient infrastructure. Over the last decade, municipal finances in Kerala have
grown at 14.5% (CAGR) for the 2004/5-2013/14 period (Oommen, 2015). Going forward, ULBs in Kerala
are slated to receive approx. Rs. 18,000 crore over the period 2015-21 including transfers from 14th CFC,
5th SFC and national urban programs supporting selected ULBs in Kerala (2 ULBs through SCM and 9
through AMRUT). Despite these increases, in terms of discretionary transfers ULBs in Kerala receive on
average, a per capita allocation from the Fifth SFC and 14th CFC (two primary sources of discretionary

151
grant allocation) of Rs. 1,400, which is around one third of the per capita allocation to the panchayats (Rs.
4,095). Hence, the discretionary funds available to ULBs for addressing their investment needs are far less
than as compared to panchayats. As such the 5th SFC recognized this and has argued that due to the rapid
urbanization in Kerala and increasing pressure to expand municipal infrastructure, more priority should
be given to the allocation of resources to ULBs. The total estimated investment need for core municipal
infrastructure is approx. Rs. 45,500Crores over the next 5-7 years to be able to provide municipal services
in all the urban areas84.
Sanitation is recognized as a major challenge in the urban areas in Kerala owing to various geographical
and demographical challenges like high population density, scarcity of land required for centralized
technical solutions, high ground water table and lack of social acceptability to allow development of large-
scale treatment and disposal facilities. Urban sanitation also suffers from multiple issues at the policy level
relating to lack of multi-year strategic investment planning, lack of adequate and steady capital funding,
and technological, operational, and capacity constraints at the local level. The sanitation problems
emerged in a strong way in the aftermath of the recent floods when the toilets, septic tanks and leach pits
suffered widescale damages due to poor quality of construction and there was a widespread increase in
surface and ground water pollution affecting the availability of drinking water supply. Lack of solid waste
facilities and treatment also contributed to the floods and many waste treatment and water treatment
plants were damages. Overall, the urban sanitation problems have led to widespread public health,
environment and social hazards in the State, and have gained priority in terms of the challenges to be
addressed with an innovative and comprehensive approach as a part of the Rebuilding Kerala Initiative.

4.4.2 Impact of 2018 Floods

The current situation of Kerala’s municipal service delivery is also being increasingly affected by numerous
natural disasters and cities need to build better systems of planning and implementing climate resilient
infrastructure. The vulnerability of the State was exposed in August 2018 when Kerala suffered
widespread floods affecting 5.4 million people. The floods exposed the vulnerability of the urban areas to
natural disasters resulting from numerous factors such as settlements of habitations in disaster prone
areas, lack of proper urban/spatial planning frameworks that; and poor quality of municipal infrastructure
being built by the local governments; inadequate drainage infrastructure and a very limited and provision
of solid and liquid waste services and infrastructure.

4.4.3 Major Legacy and Current Issues

In addition to the infrastructure and service delivery shortcoming in sanitation, the urban sector at large
encounters several policy challenges, many of which have already been identified by the Fifth State
Finance Commission report. For RKI to accomplish its mandate of ‘build back better,’ a series of
transformative urban sector reforms will have to be addressed to shift the way in which ULBs deliver
services, including the following key aspects:
 Flexibility in planning guidelines: The State annual budget provides approximately 25% of the total
expenditures to local governments as plan funds to be used for local development and service delivery
purposes. The current allocation system that has organically evolved during the last two decades

84
Preliminary estimates based on demand projections for the core municipal infrastructure (includes drinking water
supply, waste water management, solid waste management, storm water drainage and municipal roads) needs in all
ULBs.

152
 prescribe the earmarking of most planned funds among several sectors without leaving much
space/flexibility for the ULBs to undertake capital expenditures, according to the needs and priorities
of the citizens. This excessive earmarking that applies across the board to all LGs regardless of their
specific characteristics and needs have resulted in severe allocation inefficiencies.
 Enabling multi-year, large infrastructure planning: The annual planning and budgeting process
wherein the plan funds are allocated and disbursed on an annual basis, combined with the
fragmentation of resources due to earmarking, constraints the ULBs from identifying and prioritizing
multi-year critical infrastructure investments which are needed to address ‘lumpier’ investment gaps
in sectors like transportation, sanitation, that may require more comprehensive, mid-term solutions.
Currently, fund allocation for capital projects divides investments into several hundred micro size
projects that can be implemented at the ward level in a short period of 4-6 months. The preparation
of Capital Investments Plans shall be based on long term district plans and master plans, with a
corresponding budget allocation, presents a solution to start addressing this issue.
 Promoting linkages between annual plans and master and district development plans: Plan funds
are disbursed and utilized as per the annual planning guidelines, with no mandatory provision to link
the annual plans and investments with the long-term investment plans stipulated by the urban master
plans or district development plans. This has two major implications – firstly, the investment planning
doesn’t have a long-term/medium term horizon and secondly, the lack of enforcement of the master
plans had led to widespread urban sprawl and unmanaged construction in hazard prone areas, which
has proven to be extremely dangerous and vulnerable to natural disasters such as the floods of August
2018. Long delays in the preparation and notification of master plans and their lack of funding also
contributes to the weakness of the State’s mid to long term planning. The same goes for the
coordination with the current district planning exercise that is starting to be put in place in a few
districts. There are no binding regulations that link the district with the annual plans, to ensure proper
coordination between the capital investment plans of the districts and those of the ULBs. Allocation
of plan funds is not based on long term district plans and master plans and this has resulted in non-
implementation of long-term infrastructure projects.
 Addressing key human resource gaps: ULBs lack critical manpower and expertise in core functional
areas like governance, financial management, engineering and urban development, which restricts
their capacity to better plan, identify, prioritize, design, execute and manage municipal infrastructure.
Limited use of innovative technologies adds to the problem as many functions that are manually
implemented, could be automatized. The reskill and redeployment of exiting staff who are either idle
or lack capacity can also help to address the HR deficit at the ULB level. The governance systems are
also weak at the local level especially on the financial management, procurement, contract
management, front line service delivery and local administration aspects, which are areas where
appropriate skills need to be developed.
 Technical guidelines to promote quality and resilience: One of the key issues at the local level that
came to surface during the floods is the poor quality of infrastructure developed by ULBs. In addition
to the local capacity constraints, one of the critical policy constraints behind the poor qualify
infrastructure is the lack of robust technical design guidelines, service standards and construction
codes for infrastructure and buildings required in the context of Kerala and the enforcement at the
local level. Firstly, the existing guidelines and codes are very fragmented and inadequate. Secondly,
many of them, have been developed at the national level without the proper customization for the
Kerala context. Thirdly, most of the municipal engineers are not aware of the such codes/guidelines

153
 or if they are aware, they do not comply with those due to lack of expertise and weak
accountability/monitoring systems.
 Enhancing role of district stakeholders: District level agencies and stakeholders play a critical role in
the whole plan approval process for ULBs through District Planning Committees (DPCs). However,
their mandate beyond the plan approval is limited and the HR capacity at the district level to monitor
the implementation of the Plans is also inadequate. District agencies and stakeholders have a large
role to play in integrating plans across jurisdictions and also in conceptualizing inter-ULB initiatives.
While district stakeholders are closest to the ULBs and have an active participation in the local
development matters, the mechanism for inter-ULB planning and oversight are weak.
 Administrative Review: The existing Government procedures and practices developed when the
current levels of technology, people participation or specialization were not available. New
developments in these fields can change the functioning of urban local bodies and make them more
effective. In addition, numerous rules and regulations have organically grown through the years, many
of which are now obsolete. Therefore, it is necessary for the Government to review the administrative
functioning of urban local bodies considering the present tools available and also future opportunities.
Through this review and reform, the Government can decide goals for use of technology, modernize
organization structure and procedures, and to clarify the governments interface with civil society.
 Enhancing the financial sources for urban service delivery: Despite the recent increase of transfers
going to the ULBs, there is still a huge investment gap that calls for improvements in local taxation
(mainly property taxes) and the mobilization of alternative sources of financing such as land value
capturing. Instead of an incremental approach, it is necessary for the Government to take stock of the
overall resource requirement of ULBs considering the need to achieve service level benchmarks and
formulate an urban infrastructure financing and resource raising policy; and set targets for revenue
improvement.

4.4.4 Proposed Approach to Resilient Rebuilding

In the context of the challenges identified in the urban sector, the proposed sector strategy comprises 3
key pillars: (i) transformative policy and regulatory actions to be undertaken by the State government for
the strengthening the urban planning, plan allocations, governance and service delivery systems; (ii)
institutional reforms, capacity development and organizational strengthening interventions at the district
and local level; and (iii) investment support for immediate priorities such as urban sanitation (liquid and
solid waste) that need to be addressed through dedicated additional funding beyond the existing plan
funds, as a part of Rebuilding Kerala Initiative.
The proposed sector strategy will anchor the interventions to be supported by the World Bank through a
programmatic engagement comprising both (i) the proposed Resilient Kerala Programme (Development
Policy Loan) and (ii) the Kerala Urban Service Delivery Project (KUSDP, Investment Project Financing).

154
 4.4.5 Specific Interventions

Table 25: Urban / Rural Actions and Results Framework

Activities 0-6 0-18 18 months Expected

months months & beyond Outcomes

Policy/regulatory

 Revise the decentralized plan guidelines to (a) Improved

reduce fund fragmentation and (b) enable the investment
planning process at ULB level to identify and planning for
prioritize multi-year projects based on long term X identifying
plans and
prioritizing
 Decision taken by LSGD to revise the annual
multi-year,
decentralized planning guidelines.
X long term
 Approach paper finalized for revising the annual investments
planning and budgeting framework at the State and for critical
local level to (a)avoid fund fragmentation owing to municipal
excessive earmarking in plan funds and to enable infrastructure
multi-year investment planning, jointly by LSGD and development.
State Planning Board. X
 Revised annual planning guidelines formally
notified.
 Process for identifying city level multi-year priority
X
projects notified.
 Implementation of the annual planning guidelines
at the local level, including a provision for the X X
identification and planning of multi-year
investments.

 Settlement policy has to be formulated at the State X Sustainable

level. Planned
development
 Decision taken by the government to prepare
X
settlement policy.
X
 Formulation of settlement policy
X
 Implementation

 Preparation of GIS based District plans, Master Risk-informed

Plans, Interim local development plan and urban
highlighting multiyear projects in that for (1) planning lead
enabling ULBs to improve the effectiveness and to better

155
 Activities 0-6 0-18 18 months Expected
months months & beyond Outcomes
implementation ease of decentralized planning disaster
process; (2) developing enforcement framework at preparedness
state, district and local level and (3) undertake from planning,
disaster risk informed spatial and land-use planning X service
in urban/rural areas in consideration of the terrain delivery and
(high-land, mid-land and low-land) , and monitor emergency
compliance (4) on the prospect of urban response
compaction and reducing urban sprawl. perspective.
 Decision taken by LSGD to revise the urban planning
framework (including act and guidelines) for
addressing the issues relating to preparation of X
robust master plans, Interim local development
plan and effective enforcement of master plans to
regulate development in hazard-prone areas.
Clarify the procedures for linking the District
Disaster Management Plans with the master Plans.
 Action plan finalized for revision of the urban
X
planning framework of Kerala based on detailed
review and assessment of existing planning systems
and procedures.
 TCP Act amendment to ensure the preparation,
notification and enforcement of plans in a time
bound manner. Government shall have powers to X
override the approval process of the master plan,
if the LSGI s are not taking timely decisions for a
planned development. Paddy and wet land act has
to be amended to contain urban Sprawl and protect
paddy and wet lands
 New master plans and Interim local development
plans that are sensitive to the needs of groups such
as women, elderly, children, migrants, PWDs to be X
prepared based on amendment of the act and new
guidelines.

 Establish a robust regulatory framework for ULBs to Improved

improve the quality and resilience of municipal quality of
X
infrastructure. municipal
infrastructure
 Municipal infrastructure manual draft prepared
being
based on review of existing technical guidelines,
developed,
service standards and gaps identified from urban X with high level
resilience and disaster risk reduction perspective
of resilience

156
 Activities 0-6 0-18 18 months Expected
months months & beyond Outcomes
 Final municipal infrastructure manual approved by to natural
GOK and formally notified for adoption and disasters.
X
compliance at the local level.
 Capacity building and training support to be
provided to ULBs to adopt and follow the design X
guidelines and standards for execution of municipal
infrastructure projects.

 Necessary changes in building rules to contain Planned

urban sprawl, planned development and mitigate development
disasters. Provisions for construction of buildings
on hilly terrains, water logged areas etc has to be X
incorporated in the building rules
 Higher FAR values permitted for the entire State as
per building rules to be reduced and FAR values
shall be based on master plans so that road
widening, Transit oriented development, land X
pooling schemes etc can be implemented. Access
to buildings has to be increased for all occupancies
and high-rise buildings.
 Revise building rules. X

 Strengthen the building plan approval system at the X Improved

local level quality of
building
 Government decision issued to revise the building
X construction
plan approval by LSGD
and better
 Revised building plan approval guidelines prepared, compliance
approved and notified by GOK. X with building
 e-governance systems to be designed for codes.
implementation at the local level – for ensuring full X
compliance with new building rules and
transparent procedure for building plan approval
system.

 Conduct an administrative review at the ULB level X Improve the

administrative
 Government decision issued to undertake an X
procedures at
administrative review at the ULB level
the ULB level
 Complete administrative review and including use
X
recommendations to the Government of technology
and
specialization.

157
 Activities 0-6 0-18 18 months Expected
months months & beyond Outcomes
 Government action taken report on administrative
reforms and issue of required legal amendments,
X
regulatory orders and guidelines.

 Strength Public transportation system and promote X Improved

non-motorized transport systems. public
transportation
 Prepare Policy/Guidelines for Public transportation
systems
system, promote non-motorized transport system
X thereby
for LSGIs and ensure that transportation is
reducing
accessible to vulnerable populations like the elderly
congestion
and persons with disabilities.
and pollution.
 Develop standards for implementation at local
level. X

Institutional

 Strengthen the role of districts in urban planning, Improved

investment planning and project implementation accountability
X
supervision for improved municipal service delivery and
through line departments monitoring
systems for
 Necessary legislation and ensuing Government
ensuring
Orders issued outlining the role of district
better
stakeholders for ensuring robust urban planning
X compliance
and good quality infrastructure. Line departments
with urban
shall prepare projects based on Long term plans
planning and
prepared for the LSGIs
infrastructure
 Detailed guidelines issued to districts and ULBs on development
X
the institutional roles and responsibilities for urban guidelines
planning, design and implementation supervision leading to
of critical municipal infrastructure projects. improved
quality of
 Cloud data sharing platform created to enable X services and
sharing of data and to avoid duplication of studies
better urban
among line departments and inter-ULBs.
management.
 Additional manpower to be deployed at the district
level commensurate with the assigned roles and X
responsibilities.

 Strengthen the municipal cadres for deploying X Improved

adequate human resources at the local level. capacity at
ULB level to
deliver
services at the

158
 Activities 0-6 0-18 18 months Expected
months months & beyond Outcomes
 Key gaps, in non-technical as well as technical X local level in
expertise, identified and revised municipal cadre an
structures finalized to address the identified gaps. operationally
sustainable
 List of skilled labourers such as electricians,
X manner.
plumbers etc. to be prepared by each ULB.
 Municipal cadre structure revised and notified. X

 Roles and responsibilities of the Director of Urban X

Affairs defined.
 Recruitment, transfer, and reskill of personnel for X
the sanctioned positions to be initiated by State
PSC.
X
 Dedicated institute for promoting action researches
in urban development established.

 Ensure technical support for ULBs in planning

process for effective formulation of multi-year X
projects and dissemination of information of long
term plans, disaster prone areas, heritage areas etc
to the public
 Publish the plans for public awareness X

Investments

 Long term Urban infrastructure financing, resource Investments in

mobilization and revenue improvement policy. local urban
X
infrastructure
 Government Decision to formulate a policy for
enhanced
financing long term urban infrastructure
requirements and resource mobilization with focus
on implementation of development projects X
envisaged in Master Plans and Interim local
development plan. Fixed percentage of Plan funds
also shall be allocated for multi-year infrastructure
Projects.
 Report and recommendations to the Government
on a) Long term urban infrastructure financing
requirements, b) resource mobilization policy
including State support to urban investments and c)
X
revenue improvement targets at ULB level
(including for property tax and land value capture)

159
 Activities 0-6 0-18 18 months Expected
months months & beyond Outcomes
 Revise the Municipal Act and give ULBs for freedom
to increase its property taxes and levy additional X
sources of revenue, such as cess for services, land
value capture and tax increment financing
 Issue of Government policy for a) State support to
urban infrastructure financing, b) enabling X
regulations for municipal land value capture,
commercial borrowing and revenue improvement
and c) targets for municipal revenue improvement

 Dedicated state level investment programme with Improved

additional funding to be established for providing public health
X
access to resilient urban sanitation in ULBs. and
environment
 A new state resilient urban sanitation investment
outcomes
programme to be notified with additional funding
through
support earmarked for ULBs as a part of Rebuilding X improved
Kerala Initiative(RKI), over and above the existing
sanitation
plan funds. The programme should follow an
services in
incentive approach to get stronger commitment
urban areas
from ULBs.
with STPs at
 Resilient urban sanitation investment programme community
X
to be designed with the help of the World Bank level or ULB
financing support. level.
 Implementation of the sanitation investment
programme with the help of World Bank support X
through KUSDP.

 Investment to address urban heat island formation. X Reduced

temperatures
 Identified urban heat islands through studies. X
in urban areas.
 Immediate remedial measures adopted such as X
green embankment protection, conservation and
revival of existing water bodies.
X
 Guidelines to promote green buildings.
 Greening of urban areas by increased vegetation.
X

 Investment support to LSGD and ULBs to prepare Better levels

and notify risk-informed master plans with of disaster
X
hazard/risk mapping

160
 Activities 0-6 0-18 18 months Expected
months months & beyond Outcomes
 Dedicated funding support to be budgeted for LSGD preparedness
to prepare risk-informed GIS based master plans at in urban areas.
X
the district/city level, which are also sensitive to the
needs of vulnerable groups.
 GIS based risk informed master plans to be X X
prepared for cities

4.4.6 Technical Studies and Assessments

Table 26: Urban List of Studies

List of studies 0-6 0-18 18

months months months &
beyond

Policy

 Urban planning framework review and assessment for Kerala, and X

options paper for restructuring the same.
 Review of existing annual plan guidelines, identify the key issues with X
empirical evidence and preparation of revised annual plan guidelines
 Review and assessment of the existing municipal infrastructure
guidelines and building codes, and preparation of draft resilient X
municipal infrastructure manual for core municipal services and
buildings.
 Formulation of indices to be included in the guidelines for the
preparation of an Urban Development Master Plan in specific X
conditions of Kerala, based on the global best practices.
 Formulation of general guiding norms for conceiving the approach to
be followed by the local self-governments in public service delivery
through various options like
X
 Direct LSG level services
 Services being provided by State Departments of agencies
 Services being provided by private entrepreneurs (e.g., city gas,
cable services etc.)

161
 Study of the suitability of ‘Waste to Energy Plants’ as well as other
various global best practice models for the Municipal Solid Waste
Disposal specific to the Kerala conditions.
 Administrative review of local body functioning including use of
technology, organization structure, procedures and guidelines, citizen X X
and citizen group participation

Institutional

 Review of the existing municipal service cadre structure, need gap

assessment based on existing HR in ULBs and provide options for X
restructuring the municipal service cadre and for direct contracting

Investments

 Urban sanitation investment needs assessment for ULBs in Kerala. X

 Technological solutions assessment for solid and liquid waste X
management in urban areas in Kerala.
 Technological solutions assessment for storm water drainage in ULBs. X
 Identification and assessment of urban heat islands and proposing X
remedial measures.
 Preparation of master plans based on GIS and risk-informed
approaches for select 10 cities X

 Urban infrastructure financing requirements, resource raising and

revenue improvement study (including Land Value Capture, Own X
Revenue Improvement and Commercial Borrowing)

162
4.5 Roads and Bridges

4.5.1 Introduction
The floods of 2018 led to heavy damages to the roads sector. According to preliminary assessments of the
PDNA, the roads sector has the highest sectoral recovery costs. Roads in around 12 of the 14 districts
reported landslides, earth slips, debris flow and rock falls. Idukki, Kottayam, Pathanamthitta, Kozhikhode,
Malappuram districts were significantly impacted. High quality and durable road infrastructure is a
prerequisite for social, economic and industrial development any state. Tourism is one of the mainstays
of Kerala’s economy, contributing 10%of the Gross State Domestic Product. The State caters to 75% of
the all India tourist footfall as per 2016 Statistics. The current transport infrastructure of the State consists
of 2.05 lakh km of roads, 1588 kms of railways, 1687 km of inland waterways and 18 ports and 4
International Airports with road dominating among all available transport modes. Having a good road
transport infrastructure and services is key to promote tourism and seamless passenger and freight
movement85.

4.5.2 Impact of 2018 floods

Given the difference in geographical terrain Damage
across the State, the nature of disaster and Estimate Damage % of Total
Total SH &
impacts are varied. The flood diagnostic and District Name for SH & INR- Damage
MDR (KM)
inundation maps presented in the JRDNA MDR Mn/km Cost
under ‘Kerala Flood and Landslides’ indicate INR (Mn)
that the majority of the flooding occurred in Thiruvananthapuram 1842 2557.73 0.72 2.41%
areas around the backwaters and the lower Kollam 2059.4 2202.87 0.93 2.69%
reaches of the rivers where river bank heights Alappuzha 7647 1472.33 5.19 10.00%
were lower; adjacent flat areas became Pathanamthitta 6066.4 2031.37 2.99 7.93%
waterlogged to exceptional levels of up to 1– Kottayam 7928.5 3456.21 2.29 10.37%
2 m. The central mid lands and coastal plains Idukki 21360.9 2867.37 7.45 27.93%
Ernakulam 5068.6 3085.28 1.64 6.63%
witnessed massive floods from overflowing
Thrissur 5145 2064.22 2.49 6.73%
rivers/canal owing to reduced carrying
Palakkad 4409.9 2184.69 2.02 5.77%
capacity of rivers, lakes, wetlands and porous
Wayanad 5580.8 1029.31 5.42 7.30%
land. The roads in the seven districts of
Malappuram 3761.7 2680.15 1.40 4.92%
Alappuzha, Thrissur, Ernakulam, Kozhikode,
Kozhikode 2966.2 2454.65 1.21 3.88%
Malappuram, Kollam and Kottayam sustained
Kannur 1526.5 2265.24 0.67 2.00%
such flood induced damages, due to an Kasaragod 1111.13 1460.66 0.76 1.45%
absence of an integrated urban floods risk Total 76474.03 31,812
management86.
Source : JRDNA-2018 and State Economic Review 2016

In the middle and upper reaches of the rivers,

waterlogging was less although damage did occur in areas where strong currents and flood discharges, in
excess of full bank flow, impacted road structures. The forceful water currents of the river along with
debris washed away road embankments, seeped into pavement layers in absence of surface and sub-
surface drains, caused the erosion/damage of bridges, cross structures and protection works, etc. Various

85
Ref: Kerala JRDNA-2018 WB/ADB, PDNA 2018-UN, CWC 2018 Flood Reports
86
References: State Economic Review 2016/2017, By Kerala State Planning Board and Stakeholder Discussions

163
incidents of landslides linked to canal/river bank erosions, water table draw-downs, pore pressure
building, and piping effects within unstable slopes were also reported in the eastern highlands. Damages
due to landslide/slips along roads primarily occurred in four hill districts of Idukki, Wayanad,
Pathanamthitta and Palakkad.
As per the JRDNA and PDNA, about 2,004 km of SH and 13,246 km of MDR across 14 districts suffered
varying degree of damages constituting around 48% of the total PWD SH & MDR network. The NH wing
has estimated damages of about 580 km of NHs resulting in a damage estimate of Rs. 85.4 Bn. The six
most affected districts were Idukki, Wayanad, Alappuzha, Pathanamthitta, Thrissur and Kottayam. The
PDNA assessed the total sector recovery needs comprising of damages to NH, SH, and MDR roads to the
amount of Rs. 8,558 crore.
Immediate Recovery Efforts – The urban department allocated Rs. 12 crore in 2018-19, and Rs. 18 crore
for 2019-20 for roads to be repaired or reconstructed. Another Rs. 20.14 crore has been allocated for
house construction activities. As of January 24, 2019, the total fund allocated for restoration projects to
all the districts amount to Rs. 33.44 crore.
The Public Works Department (PWD) has accorded Administrative Sanction for works worth Rs. 2,764
crore by rearranging its current year’s budgetary resources for reconstruction of roads. The department
has also issued a new administrative sanction worth Rs. 371 crore for the repair of roads and bridges
under NABARD assisted RIDF, in addition to the works sanctioned by the NABARD earlier this financial
year. Following table shows the post-flood recovery works carried out by the PWD –

Table 27: The Post-Flood Recovery Works Carried Out by the PWD
Category Repair and Maintenance Resurfacing Culverts Bridges
(Km. roads) (Km. roads)
Non Plan 4429 0 656 127
Plan 0 844 0 0
NABARD 0 0 0 0
Sabarimala Package 427 375 0 0
Total 4856 1219 656 127

As suggested by the PDNA, recovery activities could include - short-term activities aimed at restoration of
traffic and arresting further asset deterioration, much of the work has already been successfully carried
out by the State in affected regions. Medium to long term activities would be founded in the principles of
‘Build Back Better’ with disaster and climate resilience approach to rebuilding activities. Activities could
focus on required technical assistance to assess the vulnerability associated with road networks;
specifically, on geo-hazard and flooding risks, and developing climate-proof framework. Activities could
also include better GIS mapping of the highway networks, with details of the river systems, geo-hazard
zones and micro-climates. This RKDP further develops upon the suggested sector recovery activities
proposed in the PDNA through analysis of the root causes and through consultations with public and
relevant stakeholders.

164
4.5.3 Major Legacy and Current Issues
Inadequate capacity to meet the
growing demand: Kerala’s “rurban”
development, widely scattered
habitation with a less obvious rural
urban divide have contributed to roads
being pre-dominant mode of transport.
It caters to 75% of freight and 85% of
passenger mobility share. The State has
a dense road network. At 528.8 km/100
sq.km it is much above national average
of 387 km/100 sq.km. Out of the total
2.05 lakh-km of road network, the primary road network of the State consists of 1782 km of National
Highway (NH) roads, 4341 km of State Highway (SH) roads and 27,470 km of Major District Roads (MDR),
and roughly constitutes 16% of the total road network and carries about 80% of road traffic and is the
mainstay of all economic activities. This primary road network has come under increasing pressure from
growing population and rapid traffic growth at around 12-14% annually and is struggling to keep pace
with the economic aspirations of the State. Out of 4,342 km of State highways, around 70% are still single-
lane with 54% in poor condition. In case of NHs, 12% of the road network have 4 lane capacities while
remaining roads have two lane or intermediate lane capacity.

Multiple institutions and lack of coordination among them - The SH and MDR network in the State is
primarily managed by the Roads and Buildings (R&BD) wings of the Public Works Department (PWD),
while the National Highways are managed jointly by NHAI and Ministry of Road Transport Highways
through the NH Wing of PWD. Further, there are many special purpose vehicles, companies and statutory
bodies formulated to manage primary road assets under PWD such as KSTP, KCCL, KRBC, KRFB etc. Most
of these bodies tap the same funding sources, thus competing among each other and creating
uncoordinated approach for asset development and management. Apart from lack of convergence, the
State institutions also lacks approach towards full-scale e-governance and efficient management systems
and processes, access to market finance and alternate revenue sources like land value capture financing,
advertisements, congestion fees for urban roads. Besides, the State so far has not established a
coordinated approach in state transport infrastructure policy and planning involving key sectors like PWD,
Railways, State Ports, Coastal Shipping, Inland Waterways, Airports Authorities and Transport
Department87.

87
Under KSTP-II, Institutional Component C, 12 months (study + implementation) for establishing a “Centre of
Excellence” for Road Sector has been commissioned. The primary objective of the study is to carry out a sector
diagnostic and outline a best possible Institutional Road Map for PWD and Road Institutions to effectively deal with
various sectoral themes like Quality Assurance, Planning & Design, R&D, Road Safety, Road Asset Management and
Climate Resilience. The Consultant to explore the pros and cons of setting up a “Virtual Centre of Excellence” which
can act as a “think tank” for the sector and help in integrated planning and policy making.

165
 Figure 29: Institutional Engagement in Roads

Project Steering
GOVT OF KERALA
Committee

Kerala
Infrastructure PWD
Investment Fund
Board KSTP- PMT
Transport
Department
Road Institutions

Roads, Bridges and Road Safety Roads and Bridges

Maintenance TSG
Department of Science & Administration Design Wing Authority Development
Technology Wing Wing (RSA) Corporation of
Kerala Ltd.
KSCSTE CMO KSTRC DSRCs Kerala State
KHRI Construction
Design Investigation Corporation Ltd
RMO-3
NATPAC & QC
Vigilance Kerala Road Fund
CDO$ Board
DMO- 14 RIQC-3 Road
Road Safety Infrastructure
Cell Company Kerala
RDO- 2 QC Labs-14 Limited

Need for updated master plan and need for implementation capacity to lower ecological footprint –
Traffic is growing at the rate of 10-11% annually. The length of road per lakh population is 615.5 km. NH
carries 40% of the total traffic, SH & MDRs, carries another 40% of the road traffic. The strategic road
network (SRN) for the State road network was identified with help of study by RITES which concluded in
2001 and a supplementary study completed by Scott Wilson in 2004, screening 2962 km of roads (26 State
Highways with total 1038 km, 58 MDRs with total length of 1122 km and 85 hill highways including 16
missing links with total length of 802 km). Of the 2160 km of network excluding the hill network, the Scott
Wilson study classified 1458 km, 607 km and 95 km as High, Medium and Low priority for development.
In 2013, CDM Smith also
carried out an exercise to Highway Density per lakh population vis-a-vis GSDP per

GSDP per capita at Constant prices

strategize the use of 8,500 capita (2016)
45 42 1,40,000
km of important roads which 38
Highway Density per lakh population

40 1,20,000
were taken by PWD from the
35

(base 2011-12)
Panchayats and classified as 30 27 1,00,000
MDRs. Beyond this the State 22 23 80,000
25
has no other road 18
20 60,000
development updates or 15
9 8 40,000
strategies in place. Further 10
there is lack of: 5 20,000
0 0

a) Fully integrated GIS

based Road
Maintenance
Total Highways per lakh population National Highway per lakh population
Management System to State Highway per lakh population GSDP Per capita
capture pavement
related data inputs and establish linkages with HDM 4 software which needs to feed into Road
Maintenance Management Planning System;

166
b) Long term performance-based management contracts for strategic road assets;
c) Capacity of state level contractors leading to implementation challenges. The major challenges of the
local contractors lie in the limited ability to execute value engineering techniques, climate proofing
and adaptation, green and resilient designing, adoption of state-of-art modern and green construction
technologies, experiences in managing new contract types like EPC, Design-Build, OPRC, poor
workmanship, implementation of work zone and environmental safety standards which are critical to
reduce overall impact on environment and ecology during recovery and rebuilding of road
infrastructure under RKI;
d) Participation of National contractors in state infrastructure projects owing to poor investment
climate.

Low Capital Outlay and Access to market Finance – Traditionally, capital expenditure in Kerala in terms
of % GSDP is less than other states in the country. While most of the better performing states in terms of
infrastructure88 have a Capex to GSDP ratio in 2013-14 in excess of 5, Kerala managed a 1.79 ratio. Bridging
the financing deficit and finding innovative means of financing were key needs that led to revamping of
KIIFB in 2016, through an ordinance which allowed it necessary administrative and financial autonomy to
access alternate investment funds (AIFs) like InVITs, IDFs, masala bonds, diaspora bonds. The public
budgetary sources that were made available to them included i.e. 10% of MV tax and 100% of State Road
Cess. The Recent road sectoral budget for FY 18-19 was Rs. 1284 crore. with roughly Rs. 90.8 crore allotted
to NH development and maintenance and rest to SH and MDR, which translates into a meagre to Rs. 0.5
Mn per km for NH and Rs. 0.35 Mn per km for SH & MDR. Another big concern of the state in improving
the capital outlay in the sector has been a lack of a state road tolling policy. Kerala Tolls (Amendment) Act,
1986 provided the basis for Tolling of standalone Bridge projects, however owing to recent public protests
tolling of these bridges’ projects has also stopped. The Kerala Road Fund (KRF) Act of 2001 provided a
framework to introduce concession specific user charges/tolling for road projects but it failed to
materialize a single BOT- Toll project in the State. Kerala Road Fund Board (KRFB), constituted under KRF,
has developed a number of Annuity based City Roads Improvement projects in Trivandrum, Kozhikode
and recently signed a contract for Alappuzha City. However, in spite of such a long-standing presence in
Kerala, KRFB is yet to create a policy/framework that taps into revenue options such as congestion
charges, advertisement revenue, land value capture through traditional means like betterment levy,
increases in stamp duty or revenues from utility ducts sharing etc. in order to finance city road
improvement projects.
Insufficient public transport service - As of 31st March 2017, 44,291 buses have valid registration of which
around 25,000 buses ply on road primarily catering to inter and intra city travel demand. KSRTC has a fleet
strength of 5,795 (which has remained stable in size for the past 6-7 years), operating 5,047 schedules on
7,548 routes. Thus, there is increased share of private operators within cities. However, KSRTC continues
to maintain the monopolistic position in providing intra-city and state passenger mobility services as these
routes are nationalized. The concept of shared route permits with private operators for intra-city services
has been initiated in recent past and is at early stage of evolution. Consequently, the concentration of
two- and four-wheelers has increased many folds and is considered to be the main cause of traffic
congestion in the cities and state road network. Insufficient public transport service also contributes to
excess carbon emission as well as places an additional load on existing road infrastructure.
High climatic risk and disaster-prone areas - The road network of the State is prone to natural disaster
due to unique terrain features – such as highlands, rolling hills & mountainous terrain, mid-lands and

88
As per white paper on State Finance, June 2016

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coastal plains. The hilly areas are vulnerable to landslides often caused due to intense rainfall during
monsoons. The states face two bouts of monsoons (South west and North -East in a year starting June
ending November) witnessing high rainfall intensity. Similarly, the coastal areas are susceptible to coastal
flooding, cyclones and inundation from sea water. During 2018 floods and landslides, around 48% (in kms)
of the total state road network was reported damaged mainly due to floods, landslides, earth slips, soil
movement and rock falls. Flood inundation maps show that the majority of flooding occurred in the areas
of back waters and lower reaches of the river. In the middle and upper reaches the flooding was less, but
damage did occur in the areas where strong current and discharges were in excess of full bank flow,
damaging road infrastructure. Additionally, there is no integrated urban floods risk management or GIS
based vulnerability and risk mapping of the asset stock of the State to prepare project specific mitigation
efforts or a resilience framework for roads.
Road Safety – Road Safety has been a perennial challenge for Kerala. In 2016, there were 39,420 road
accidents, 4,287 deaths, and 44,108 injuries which translated to high accident severity index of 12.8
deaths per lakh population. Between 2015 and 2016, the State recorded a 20% increase in road accidents.
The major road safety challenges include increase in the share of 2W & 4W vehicle registrations (2Ws are
extremely vulnerable to accidents), conflicts of vehicle movements on narrow un-divided roads, high
roadside frictions from abutting land-use, high percentage of two-wheelers in the modal share (road
traffic), lack of safe mobility facilities for vulnerable road users, in-adequate enforcement and lack of a
multi-sectoral approach to deal with road safety. As part of KSTP-I, in 2007 Kerala became the 1st state in
India to statute a Road Safety Authority (RSA) headed by the Transport Minister and in 2009 Kerala created
a dedicated Road Safety Fund. However, KRSA have not been very active in identifying and implementing
multi-sectoral road safety projects in the State. As part of KSTP-II, the Road Safety Component focused on
implementation of a Safety Corridor Demonstration Project (SCDP) for 80 km state road network and
adopting the learnings in 10 small corridor demonstration projects identified across the State with a focus
on improving road safety through multi-sectoral interventions with the help of an earmarked “Challenge
Fund”. The State has delayed implementation of SCDP which is still underway. This show a lack of
institutional commitment to such a multi-sectoral approach to implementing road safety projects. As part
of re-instating the institution of KRSA, KSTP-II funded the establishment of a Technical Support Group
(TSG), hiring of few eminent experts in the field of Road Safety to function as secretariat of KRSA. However,
unless ownership is taken by KRSA this may not very successful arrangement. Recently, the State MVD
launched “Safe Kerala” programme based on the success of “Safe Sabarimala” with the objective of
curbing road accidents and fatalities and inducing disciplined road culture in the State. The initiative
primarily focuses on strengthening the enforcement wings of the motor vehicle department with modern
control rooms in each district, 24/7 patrol and enforcement through appropriate resources and tools (such
as radar fitted interceptors with Lux, Alco and Sound meters, patrol vehicles and surveillance/speed
cameras). Although, this is a good initiative there is a need to establish protocols for adopting duty of care
in tackling overlapping enforcement functions between the Police and the Transport Department and
establishing a collaborative framework across PWD, Health and Education Departments for developing
and managing a Safe Road Network in the State.

4.5.4 Proposed approach to Resilient Rebuilding

Roads are the primary mode of transport in Kerala and would continue to remain
so in the envisioned recovery and rebuilding time-frame of “New & Green Kerala”
under RKI. As the State embarks on this esteemed vision, the future of
transportation mobility needs to be well-tailored towards sustainable, greener
road transport with low ecological footprint. Thus, while developing new /re-

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building roads there is a need to focus on multi-modal integration, improve productivity of current road
assets, outline strategy to shift to low carbon emission vehicles and fuel technology, increase modal share
of efficient public buses and shared transport mobility, and build an overall climate and disaster resilient
road asset stock. Some of these aspects needs multi—sectoral intervention/involvement i.e. Transport
Departments, KSRTC, other State Transport Departments, LSGD as well as necessary political buy-in and
community level participation. In light of this, the road sector modernization plan for RKI has identified
four critical reforms pillars A, B, C and D as shown in the figure:

Figure 30: Critical Reform Pillars for Roads

Road Transport Policy & Planning: Integrated road transport policy/strategy/ planning for
sustainable road development and lowering ecological footprint; increase share of public
A bus transport and other shared mobility; update and efficiently manage strategic road
network (SRN); safe roads; activate knowledge centers like COE1 for cross-cutting issues,
sectoral themes, innovations and future trends and multi-sectoral collaboration.

Modernization of Institutions and Improved Construction Capability: Establish

institutional framework for an Integrated multi-modal approach to transport
infrastructure policy, planning and investments; reorganizing and institutional
B
B strengthening of road agencies, their governance structures, business processes,
operations, improved E- Governance, staff capacity building; dealing with multiple
institutions i.e. KSTP, KCCL, RBDCK, RICK, KRFB; establishing need for Strategic
Road Network Authority; capacity building of local contractors; and improving
State investment climate for increased participation of national contractors.

Climate and Disaster Risk Resilience: Vulnerability risk assessment-based planning

CC and designs; GIS mapping of disaster and climate risks; guides/design standards for
climate works, value engineering; green construction techniques; using local and
resource efficient materials; green and sustainable procurement practices.

PPPs, Access to Finance and New Contracting Structures: Need for convergence of
Institutions and financing for Strategic Road Network (SRN); State Road Toll Policy; new
and innovative financing structures, alternate revenue models like LVIT (Land Value
DD Increment Tax), congestion charge, advertisement tax; new contracting structures like EPC,
Design Build, input based FIDIC contracts with longer defect liability/maintenance period;
PPPs- BOT-Toll, Hybrid Annuity; and long term performance based maintenance contracts.

RKI interventions aim for a Safe, Green, Resilient, and Seamlessly Connected Road Network for All by 2030.
The road network will be planned, developed and managed following four globally accepted mobility
attributes i.e. equitable, efficient, safe and climate responsive with the help of supportive policy,
regulations, institutional and governance structures and reforms within an overall aim to achieve
economic efficiency with lower ecological footprint for a Greener Kerala under the Rebuilt Kerala
Initiative.
The various immediate and phased interventions in terms of line activities and outcomes are presented
in tables later in the chapter. This has been carefully conceptualized as action agendas covering policy,
legislations, regulations and institutional reforms. There is also a need to include cross sectoral linkages
for achieving optimum results and utilization of resources for which supporting institutional frameworks

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have also been recommended. Since the roads sector has the highest recovery costs, phasing of activities
should be done in such a manner so that parts of the sector which would enhance resilience building are
prioritised.

4.5.5 Specific Interventions

Table 28: Roads Activities to be Taken up for Sector Reforms

Activities Description

Policy Develop a State Road Transport Strategy/Master Plan (0-18 months) aimed at an optimal use of
/Regulations different modes (road, rail, inland waterway, ports) and enhance passenger mobility with
efficient public bus transport services. The Strategy/Plan will articulate a roadmap for a demand-
Supporting
driven balanced transport modal share in the State. It will include feasibility evaluation of
Framework
providing separate exclusive two-wheeler/ three-wheeler lanes in urban stretches of core
network roads. The master plan will articulate strategy for efficient fleets, fuel technology, smart
infrastructure access, smart truck parking management, monitoring and enforcement of weights,
and the use of ITS/ICT to ensure the compliance with infrastructure and regulations.
The Road Master Plan shall update available PWD information from prior Strategic Road Network
(SRN) studies of 2001, 2004 and 2013, GIS information and road network investments under
KSTP- I&II, LSGD and other state- funded projects. Road Master Plan will identify the new list of
Strategic Road Network (SRN) and also 2-3 major multi-modal corridors with high freight traffic
volumes, potential new growth nodes, and the large number of urban choke points which need
de-congestion.

Policy Develop an Institutional Road Map for PWD Road Asset Management (0-6 months): The Centre
/Regulations of Excellence” (COE) for Road Sector Consultant hired under KSTP-II shall carry out a diagnostic
review of current institutional arrangements for Road Asset Management in PWD and provide an
Supporting
institutional road map for asset management of SRN and Non-SRN networks and implementation
Framework
of other best practices. On the basis of updated Road Master Plan and SRN, PWD shall decide on
next steps for efficient asset management of PWD road network.

Policy Organize study/exposure visits (0-6 Months) of PWD staff to states like Andhra Pradesh, Tamil
/Regulations Nadu, Chhattisgarh that have successfully implemented projects on EPC, PPPs, Long Term
Performance based management contracts. The team will prepare study visit reports, initial
Supporting
action plans for various new forms of contracts, detailed contract structures for rolling out PBMC
Framework
for initial set of PWD roads. Prepare terms of reference for engaging a Consultant to advise on
New Contract Models and PBMC.

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Activities Description

Policy A Road Maintenance Management System (RMMS) shall be developed (0-18 months). To begin
/Regulations with, it may cover SRN with established protocols to periodically collect and update the data
required for RMMS. The option of using advanced Road Survey Vehicle like ROMDAS/Network
Supporting
Survey Vehicle (NSV) and vehicle mounted Falling Weight Deflectometer (VMFWD) for data
Framework
collection shall be ascertained. PWD may also decide to procure a ROMDAS/Network Survey
Vehicle for the State with at-least 5 years Annual Maintenance Contract (AMC). A well-informed
decision to be taken based on sound cost-benefit analysis, evaluation of pros and cons for
allowing hiring by other states road agencies on rent. A team of PWD engineers from
Maintenance Wing shall be trained on data collection techniques, operation of NSV/RODMAS.
As part of the operationalizing Road Asset Management Cell/Wing, institutional responsibility
matrix, data collection frequency and formats, framework for Annual Maintenance Budget
Planning for SRN and Non-SRN to be clearly established.
Bridge Maintenance & Management System (BMMS) to be established in PWD. The system will
periodically collect and update the data required for BMMS system to work, this will include the
acquisition/leasing of Mobile Bridge Inspection Unit. The newly formed Bridges Wing to be made
responsible for updating the data and using the BMMS system, preparing budget requirements
as well as health monitoring requirements with the help of instrumentation in case of under-
performing bridges.

Policy Evaluate State’s preparedness for PPP, New Contract Model and Tolling (0-6 Months): Carry out
/Regulations diagnostic review of state experience so far in implementing PPPs, national and international best
practices on PPPs and contract models that can relevant for the State and explore possibility of
Supporting
road tolling policy and its framework clearly articulating political risks and also innovative
Framework
financing tools. This will include exploration of possible enforcement of fees/ penal charges /
multiple use per day charges etc., with IT enabled systems for strict compliance of rules ensuring
efficient use of road infrastructure.

Policy Explore possibility of rolling out Performance based maintenance contracting (PBMC) 0-18
/Regulations Months for asset management. This would analyse the current procurement and contract
management framework for road asset management / maintenance and explore the
Supporting
opportunities and constraints for moving towards a long-term performance-based asset
Framework
management framework aided by a multi-year budgeting framework in PWD. The study would
also look into the opportunities for embedding emergency response modules as well as well as
incentive structures to promote resource efficiency, use of new and green technology processes
and local materials. Formulating capacity building measures for the local construction industry
using the long-term performance-based maintenance framework would also be a desired
outcome of this study.
Award balance of KSTP I, II (18 Months and Beyond) and other recently completed road projects
build using planned funds on PBMC

Policy Identify projects which can be implemented on new/alternative contract models (0-6 Months)
/Regulations as evolved from the study i.e. Item Rate with increase in defect liability period, EPC, Design-Build
for Bridges/Special Road Infrastructure Projects, Input based contracts with longer Defect
Supporting
liability/maintenance period, BOT-Tolls, Hybrid Annuity etc.
Framework

Policy Comprehensive disaster and climate risk assessment of PWD Road Network (0-6 Months)
/Regulations including geohazard, flood and erosion and storm surge vulnerability and prepare climate and
disaster proofing framework /strategy for the State including multi-criteria decision-making tools

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Activities Description
Supporting to consider realignment options to avoid higher disaster risks, possibility of alternate transport
Framework modes like water-ways, ropeways for last mile connectivity etc. The study should also identify
need for multi-disciplinary approach to climate resilience building, funds needed to cover
additional climate proofing costs, funding lines i.e. climate funds, need for new procurement
principles like Green Procurement Principle (GPP) or Sustainable Procurement Principle (SPP) for
climate works.
Engage with State GSI, State Geological Programming Board (SGPB) for multi-sectoral landslide
investigative analysis (0-6 Months) for vulnerable PWD road asset stocks in the Eastern
Highlands and explore possibility of implementing community driven technology based early
warning systems (EWS) for highly vulnerable zones.
Explore Bio-engineering and scientific afforestation programs for State Hill roads (0-6 Months)
and demonstration projects related to soil conservation, land stabilization programme along road
corridors with Department of Soil Survey and Conservation

Policy Develop GIS mapping for floods, landslides, geo-hazards along with mapping of all major
/Regulations rivers/canals (0-18 Months) with OFL/HFL, urban areas with population details for entire PWD
road network.
Supporting
Framework PWD Policy and Manuals updated with specific technical guidelines/circulars for value
engineering applications, resource efficiency in design and construction techniques and
incorporating resilience. It covers new forms of contracts and procurement processes like GPP
and SPP for climate works.
1 or 2 pilot projects implemented for real-time Early Warning Systems (0-18 Months)

1 or 2 pilot Bio-engineering, afforestation, soil conservation and land stabilization projects are
implemented along vulnerable corridor (0-18 Months)

Policy Plan and Execute “Advanced Seminars on various up-coming sector topics” (0-6 Months): These
/Regulations advanced seminars to target participation of industry, academia, domain experts, material and
suppliers/manufacturers from India and abroad. The Seminars shall consider screening and
Supporting
selection of “peer review papers” for brain storming break-out sessions on various sub-themes.
Framework
An indicative list of topics that can be covered include:
1. Advanced Planning and Design of Road Assets and Climate Proofing;
2. Sustainable Road Development in the State with a focus on climate proofing of Hill Roads;
3. New Models of Contracts for development and maintenance of road assets and PPPs in Road
Sector;
4. Future of Road Geometrics for the State based on equity principle. Space for public transport
users, NMTs, priority bus corridors.
The key take-ways from the Advanced Seminars to trigger policy actions, change in regulations
for promotion of new approaches to planning, green construction technology, reduce-recycle-
reuse to drive resource efficiency and lowering ecological footprint. At-least 2 Advanced Seminars
to be targeted in this period and the next 2 can be rolled in the next phase (6-18 Months)

Policy Deepen existing engagement for associated Policy Frameworks (0-6 Months): Transport
/Regulations Department has signed MoU with WRI-India on 10th December 2018 to help them in the
following i.e. Policies, Frameworks & Action Plan for Electric Vehicles, Transit Oriented

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Activities Description
Supporting Development (ToD) in the State, Public Transport Policy for the State. Transport Department. The
Framework engagement needs to be well coordinated under multi-stakeholder framework including RKI
Mission to deepen the understanding on the current state of passenger mobility demand in state
breaking it up into intra-city, inter-city and inter-state and providers with broad scanning of
permit information and discussions with KSRTC and private operators.

Institutional Constitute a multi-disciplinary “Road Transport Sector Modernization Task Force” (0-6 Months)
comprising of following members Principal Secretary-PWD, PD-KSTP, CE-R&B, CE-NH, CE-KSTP,
ED-RSA, CE-LSGD, CEO-KRFB, Director & Jt. Secretary level officers from Transport, Inland Water,
State Port Departments and KSRTC. A number of sub-groups shall be created to anchor various
internal studies, workshops, advanced seminars, TAs funded by multi-laterals and bi-laterals,
develop and administer policy, regulatory and institutional reform agendas for approval of the
Task Force. Sub-groups are encouraged to have members from Industry, academia, research
organizations and civil society. For some of meetings the National Transport Agencies should also
be invited.

Institutional Review and enhancement of the e-governance tools in PWD (0-6 Months):
Focusing on the existing e-governance tools in PWD including GIS, Road Maintenance
Management System, Financial Management System and Project preparation and engineering
design system (PRICE) to enhance their efficacy and sector wide application, improved inter-
system integration and opportunities for integrating climate and disaster risk assessment. Crowd
sourcing of data and strengthening the monitoring and user feedback loops would also be
covered under this initiative.

Institutional COE Consultant prepare diagnostic review and institutional road plan for various sector themes
(0-6 Months). The study to develop “blueprints” of different COE structures that can be
operationalized in the State and to focus on key aspects such as mission/role, business
plan/strategy, funding and collaborative linkages with government, other sector-stakeholders
and academic/research institutions with various maturity models.

Institutional Develop consensus of PWD and State Cabinet for establishing a “Centre of Excellence” for the
Road sector with necessary administrative and financial autonomy (0-18 Months). “Centre of
Excellence/s” shall be implemented with constitution, development of in-augural 3 Year
programme of technical activities, operational targets, progress and impacts and monitoring
indicators.

Institutional Development of Institutional Strengthening Action Plan (0-18 Months) : Institutional Reforms
study covering review of current main functions, organizational structure, resources and
circumstances of the respective Road & Bridge Wings / major units of the PWD to identify the
scope for fruitful short-to-medium term actions on reforms, rationalization and/or strengthening
in each Wing / major unit’s capacity and management; and subject to the PWD senior
management’s decisions on the Study findings and recommendations, assist the Department in
launching short-to-medium-term Action Plans for each R&BD Wing, and other non-statutory and
Statutory Road Institutions like KRDCL, KRFB and KSCCL. Also, critically evaluate the pros and cons
of constituting a body corporate like “Strategic Road Management Authority” by hiving of PWD.

Institutional Improving Contractor Capacity and PWD Works Monitoring Tools (0-6 Months): A series of
workshops (two at-least) may be considered for improving Contractor Capacity to implement
road projects on EPC, lower impact on ecology, improved workmanship and quality of
construction, implementation of work zone safety and health standards, environmental

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 Activities Description
safeguards, labor management issue, on how to roll out effectively PRICE systems for works
management payment, how PWD can use modern ITS tools for work supervision, and what are
key enablers to attract national contractors to bid for RKI projects, market reach outs and
communication strategy.

Institutional Develop a Contractor Performance Rating Framework (0-18 Months) and Institutional
Mechanism for annual rating of contractors including guidelines for black-listing and debarment
owing to poor performance.

Institutional Additional capacity building measures including exposure visit (0-18 Months) to best practices
in other states and countries, organizing workshops and training for PWD staff with guest
lecturers, faculties on various topics DPR preparation, Bridge Health Monitoring. Explore use of
KHRI Training facilities for the same.

Investment Detailed Project reports (DPRs) 0-6 Months for about 800 km prepared: The DPRs for prioritized
roads to be prepared using a landscape approach which would include assessment of geo hazard
and flooding / erosion risks as appropriate. Preparation of DPRs would include detailed road
pavement investigation following modern methods e.g. Falling Weight Deflectometer tests,
topographic surveys using LIDAR or equivalent technology, detailed soil investigation for
pavement, structures and embankments and hydraulic discharge calculation for cross drainage
and road side drainage. All DPRs would have to have specific focus on resilient construction
technology and material and resource efficiency measures. All DPRs must be ground-truthed
jointly by the local PWD Engineers and KSTP PMT. Close scrutiny of DPRs is essential to ensure
quality, safety and resilience. Provision for road safety audits to be included during planning,
design and construction stage.

Investment Develop contract packages 0-18 Months for bidding and award of about 800 km of prioritized
projects. Rationalize choice of contracting models to be applied to each package and take
approval from PWD.
Select 2-3 Authority’s Engineer/Construction Supervision Consultant depending on the no of
contracts and proximity of the project roads for grouping it under a single AE/CSC.

Investment Development and Investment Plans for SRN is prepared (18 Months and beyond)
Initiate Feasibility Study/DPRs to be undertaken for 2-3 major multi-modal corridors with high
freight traffic volumes identified under Revised Road Master Plan. These studies shall use modern
planning and design tools like Artificial Intelligence (AI) big, Satellite imagery etc.

Table 29: Roads Actions and Results Framework

Activities 0-6 0-18 18 months Expected Outcomes

months months & beyond

Policy /Regulations Supporting Framework

 Develop a State Road X X An overarching strategy in place for multi-

Transport Strategy/Master modal transport infrastructure policy,
Plan planning and development, modernization
of transport fleets and fuel technology with

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 Activities 0-6 0-18 18 months Expected Outcomes
months months & beyond
an overall aim to reduce transportation
costs (passenger and freight) to the State
economy by 50%.
Road Master Plan is updated and revised
Strategic Road Network (SRN) is identified
for investment plan outlays.
All LSGIs shall have a definite road hierarchy
plan based on planning standards

 As part of the The entire Strategic Road Network (SRN) is

operationalizing Road Asset planned, budgeted, developed and
Management Cell/Wing, maintained based on functional Road
institutional responsibility X Maintenance Management System.
matrix, data collection Attention will be given to construction and
frequency and formats, maintenance in hilly areas where tribals
framework for Annual reside.
Maintenance Budget
Non-SRN also has scientific budget
Planning for SRN and Non-
allocation framework based on protocols
SRN to be clearly
established by Road Maintenance Wing.
established.
Health monitored for all major bridges of
 Bridge Maintenance & X PWD road network with the help of a well-
Management System developed maintenance framework with
(BMMS) to be established in clearly established funding lines for all.
PWD.

 Evaluate State’s At-least 800 km of the Strategic Road

preparedness for PPP, New Network (SRN) is developed using new
X
Contract Model and Tolling contracting models, toll policy developed
and applied on important freight corridors.
At least 25% of the Primary Road Network
(PRN) is brought under the long-term
performance based contracting framework,
with built-in emergency response module.

 PWD Policy and Manuals X Network wide climate and disaster

updated resilience framework developed and
applied with new budget lines.
 Comprehensive disaster and X
climate risk assessment of GPP and SPP procurement guides are
PWD Road Network adopted for Climate Works.
 Pilot Bio-engineering, Improved resilience of Hill roads with
afforestation, soil emergency response mechanisms with
X
conservation and land community operated EWS.
stabilization projects are Policy on Bio-engineering, afforestation, soil
implemented along conservation and land stabilization
vulnerable corridor programmes for Hill Roads framed.

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 Activities 0-6 0-18 18 months Expected Outcomes
months months & beyond

 Development and X Policy outlined for implementing modern

Investment Plans for SRN is tools in planning; application of value
prepared. Initiate Feasibility engineering and resource efficiency; green
Study/DPRs to be construction techniques; climate proofing
undertaken for 2-3 major of road works with detailed protocols for
multi-modal corridors with different categories of risks and
high freight traffic volumes vulnerability; safe and equitable road
identified under Revised geometrics which accord higher road space
Road Master Plan. Studies for public bus transport, NMTs for various
shall use modern planning classified PWD road network i.e. SRN- SH,
and design tools like Artificial MDR, Non-SRN-SH, MDR
Intelligence (AI) big, Satellite
imagery etc.

 Comprehensive disaster and Integrated Transport mobility established in

climate risk assessment of all million plus cities.
PWD Road Network strategy
Increase share of efficient, low emission
for the state including
public bus transport (private and public) to
possibility of alternate
70% in the SRN.
transport modes like water-
ways, ropeways, etc. for last X X
mile connectivity. Constitute
multi-disciplinary “Road
Transport Sector
Modernization Task Force”

Institutional

 Constitute a multi- X Establish Institutional framework to drive a

disciplinary “Road Transport multi-modal Transport policy, planning and
Sector Modernization Task budgeting established in the State for e.g.
Force” (0-6 Months) committee of Secretaries of State Transport
comprising of following Infrastructure-related State Departments
members Principal through Executive Order.
Secretary-PWD, PD-KSTP, CE-
R&B, CE-NH, CE-KSTP, ED-
RSA, CE-LSGD, CEO-KRFB,
Director & Jt. Secretary level
officers from Transport,
Inland Water, State Port
Departments and KSRTC

 Develop consensus of PWD X “Centre of Excellence” for Road Sector

and State Cabinet for constituted. COE matures into a think tank
establishing a “Centre of providing advisory support to road and

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 Activities 0-6 0-18 18 months Expected Outcomes
months months & beyond
Excellence” for the Road other transport agencies in the State for
sector with necessary Integrated Transport policy, planning and
administrative and financial adoption of best practices and emerging
autonomy trends.

 Development of Institutional X Rationalize institutional fragmentation in

Strengthening Action Plan. the road sector and consolidate PWD.
Institutional Reforms study
In case, institutional reforms study outputs
covering review of current
indicate need for a “Strategic Road Network
main functions,
Authority” to be carved out of PWD with re-
organizational structure,
allocation of mandates for greater
resources and circumstances
Efficiency, and effectiveness developing,
of the PWD to identify the
financing and manage SRN and there is
scope for fruitful actions on
cabinet approval for the same, SRNA should
reforms, rationalization
be established as a body corporate with
and/or strengthening
necessary administrative and financial
autonomy.

 Improving Contractor X X X Capacity of local contractors developed,

Capacity and PWD Works 10% of Local contractors transition to
Monitoring Tools. A series of national level contractors with improved
workshops (two at-least) Financial Capacity.
may be considered for
Established National level contractors start
improving Contractor
participating in State Projects.
Capacity to implement road
projects. Develop a Contractor Rating Framework developed
Contractor Performance and institutionalized by PWD.
Rating Framework and
Institutional Mechanism for
annual rating of contractors

 Detailed Project reports A minimum 800 km of safe, green, climate

(DPRs) for 800 km prepared: resilient and equitable road network
DPRs for prioritized roads to developed.
be prepared using a X X
DPRs and Investment Plans ready for 2-3
landscape approach,
major multi-modal corridors.
including assessment of geo
hazard and flooding /
erosion risks. Develop
contract packages for
bidding and award. Initiate
Feasibility Study/DPRs to be
undertaken for 2-3 major
multi-modal corridors with
high freight traffic volumes
identified under Revised
Road Master Plan

177
The various activities identified in the table above are to be carried out by PWD in collaboration with
Transport Department, KSRTC, Other State Transport Agencies, Soil and Land Survey Departments. Some
these activities would require further organized studies which will form TAs which can be supported by
multi-lateral/bi-lateral agencies. The list of such studies is presented in the table following:

4.5.6 Technical Studies and Assessments

Table 30: Roads List of Studies

List of Studies 0-6 0-18 18 months Oversight#

months months & beyond

Policy / Regulations

Developing an Integrated Road Transport PWD-R&B Wing, GIS Cell,

Strategy and Updated Road Master Plan for Transport Department,
X
Strategic Road Network (SRN) Other State Transport
Agencies

Data Collection and Development of RAMMS (To X PWD Maintenance Wing

begin with SRN) & GIS Cell

Climate Change and Disaster Risk Vulnerability PWD, Irrigation, GSI,

Assessment of PWD Road network- A sample of water Resources and KSTP
1000 km from most vulnerable districts from
distinct climate regions to be studied to X
articulate the strategy.

Developing Performance based contracting PWD R&B Wing & KSTP

framework for asset management, new forms of
X
work contract like Item Rate with increased
Defect liability period, EPC. Design Build for
Bridges etc.

Study of PPPs in Road Sector in Kerala, Road KSTP, KRFB, KIIFB

Tolling Policy and access to Alternate Revenue
X
Streams and market Finance

Strategy for Enhancing public bus Transport on Transport

State Road network with focus route Department/KSTRC/PWD/
X
rationalization, bus contracting models for inter- KSTP
city operations, transport tax reforms, parking
policy and dealing with urban congestion

Institutional

Institutional development Study for PWD Road PWD Wings & KSTP
and Bridge Wings articulating the pros and cons
of a separate Strategic Road Network Agency,

178
 List of Studies 0-6 0-18 18 months Oversight#
months months & beyond
need for convergence of various Road X
Institutions clearly indicating issues like
competition for funds and strategic projects

Review and enhancement of the e-governance X PWD R&B Wing & GIS Cell
tools in PWD with support in procurement of Irrigation, GSI, Water
hardware. Resources, LSGD
Engage a Consultant to prepare GIS maps of
PWD road with assets like bridges, culverts, X
buildings, rivers, canals with geo-hazard and
inundation maps. The map should provide high-
level information on road specific natural
hazards and climate risks for planning. 89

Investments

Detailed Project Report for 800 km of Prioritized PWD R&B Wing & KSTP
Roads with help of 4 Consultants (Two existing
KSTP consultants to be used, Tender process for
selection of 2 additional Consultants under X
process)

Mix of all

Other Supports in terms of workshops, advanced PWD Wings, SPVs, KRFB &
seminars, study visits to other States, individual KSTP
X X
consultants for drafting of technical
guides/manuals, training of PWD staff

# All the TAs to have an oversight of multi-disciplinary “Road Transport Sector Modernization Task Force” and their sub-groups constituted under
the same.

89
PWD to whether use paid version of Google Map or field data collection for entire PWD network using
NSV/RODMAS as part of Revision of Road Master Plan and SRN.

179
4.6 Transportation

4.6.1 Introduction
Kerala comprises of 1,588 km of railway line, 2.29 lakh km of road, 4 international airports, 18 ports with
585 km of coastal routes and 1,687 km of inland waterways. Roads in Kerala play an important role due
to the linear structure along with the diversity in topography. The Transport department of Kerala has
multiple subordinate agencies under its administration as shown below.
Table 31: Subordinate Agencies under the Transport Department of Kerala

Department Role

Public Works Department The Roads and Bridges wing of the PWD is mandated for looking after
the State Highways, MDR, District roads in the State

Kerala State Road Transport PSU that is responsible for the passenger transport operations in Kerala
Corporation (KSRTC)

 Responsible for matters pertaining to Enforcement of the Motor

Motor Vehicles Department
(MVD) Vehicles Act and Rules, Registration of vehicles, Collection of taxes and
fees

State Water Transport Responsible for regulation of the inland navigation systems and
Department provides for inland water transport facilities

Kerala Rail Development Responsible for the development of railway infrastructure development
Corporation Limited (KRDCL in Kerala. It is a JV with the Indian Railways

Kochi Metro Rail Ltd (KMRL) SPV owned by Central and State Government for the construction of the
Kochi Metro Rail Project

The State Public Works Department (PWD) and Transport Departments are the two principal
administrators and regulators of road transport infrastructure and systems. The major function of
Transport Department is to operationalise provisions of Motor Vehicle Act 1988 and Central Motor
Vehicle Rules (CMVR) 1989 i.e. driving license issuance, trainings, vehicle registrations, vehicle inspection
& testing services, issuance of route permits and vehicle taxations. The Transport Department also acts as
a secretariat with administrative control of several line/subordinate departments like:
 Kerala Rail Development Corporation Limited (KRDCL)
 Kerala State Road Transport Corporation (KSRTC)
 Kerala Transport Development Finance Corporation (KTDFC)
 Motor Vehicles Department (MVD)
 State Water Transport Department

180
Additionally, the State’s three-tier governance system places Local Self Governance Department as the
umbrella organization responsible for provision of road transport infrastructure in urban and rural areas
through Urban Local Bodies (ULB) and Panchayat Institutions.
Thus, the Transport Department will be the key agency to execute all proposed Transport sector reforms
such as improvement of:
 Bus transport-vehicle and fuel technology;
 Public transport services and associated infrastructure;
 Vehicle taxation to drive a green transport;
 Technology for safer roads, safer vehicles with revamped inspection and testing regimes, as well as,
prepare an integrated transport planning framework to reduce sectoral carbon footprint;
 Coordinated State Transport Infrastructure policy and planning (coordination with other Transport
agencies is required);
 Integration of public transport modes (requires coordination with LSGD institutions and other
transport institutions).

Road Network
National Highways (NH17, 47, 49, 208, 212, 213, 220, 47A and 47B)90 are the primary network carrying
about 40% of the road traffic and the state highways and Major District Roadways (MDR) the secondary
road network carries another 40 % of the traffic. Nearly less than 10% of the road network carries 80% of
the traffic. A majority of the roads in Kerala are single lane roads in the State. About 1.63 lakh km of roads
are administered by the various local governments of which a majority of them are black topped.

Railways
The next important mode of transport is the Railways. The State has a total railway track of 1,588 km
operating between 1,257 km route length which carries about 4.76 lakh passengers daily. There are about
200 railway stations and totally 156 express and 109 passenger trains operating daily. Kerala tops in rail
electrification with about 83.54% coverage of electrification91

90
Economic Review 2018, GoK, pg. 381
91
Can Karnataka catch up in railway electrification?
https://www.thehindu.com/news/national/karnataka/can-karnataka-catch-up-in-railway-
electrification/article22267876.ece (Accessed on : 25,Jan,2019)

181
 Figure 31: Railway Network of Kerala

Source: Southern Railways, 2015

Metro Rail and LRT

Kochi Metro Rail, operational from June 2017 connects rail, road and water transport facilities. Connecting
16 stations with a network of nearly 20 km. In addition to that Light Metro Rail, a mass rapid transportation
mode has been proposed across Thiruvanthapuram and Kozhikode. In addition to that a water metro has
been proposed in Kochi which envisages a route length of 76km across 16 routes covering 38 jetties.

Inland Water System

Kerala has a well-connected inland water system covering 1,687 km to connect the 40 rivers. The existing
systems includes-West Coast Canal system with length of about 560 km. Starting from Kovalam in the
south and extending up to Hosdurg in the north. Within this, the Kollam- Kozhikode stretch (328km) is
already designated as National Waterway-3 (NW-3) along with Champakkara (14 km), Udyogamandal
canals (23 km), Alapppuzha- Changanassery (28 km), Alappuzha- Kottayam- Athirampuzha (38 km) and
Kottayam- Vaikom (42 km). However, the inland water system has seen reduction in passenger over the
years. The west coast canal fell into disuse because of competition from road and rail transportation and
lack of maintenance. Despite the State having more than 1,680km of waterway network only 20% of them
are in a usable condition.

182
 Figure 32: Inland Waterway Network, Kerala

Airports
Kerala has four international airports in Kannur, Kozhikode, Thiruvananthapuram and Kochi serving over
8 lakh domestic and 50 lakh international passengers every year.

Motor Vehicles92
Kerala has 120.42 lakh registered motor vehicles as on March 2018. For the last two decades it has
experienced a compounded annual growth rate of above 10 %. The number of vehicles per 1,000
population for Kerala as on March 2018 is 361. Personal vehicles have recorded a faster growth rate over
the previous year.
The highest vehicle population has been recorded in Ernakulam District with 17,96,868 vehicles (14.9%)
followed by Thiruvananthapuram with 15,23,414 (12.7%). Wayanad District has the lowest number of
1,76,093 (1.5%) vehicles. The mismatch between growth in motor vehicles and the capacity augmentation
of roads has resulted in increasing traffic congestion and road accidents throughout Kerala. Major
schemes implemented by Motor Vehicles Department are road safety measures, establishment of vehicle
testing stations and modernization of check posts. Department has started driver testing tracks at
Chevayoor (Kozhikode), Elavayoor (Kannur) and Parassala (Thiruvananthapuram). The works of three

92
Economic Review 2018, GoK

183
tracks, one each at Muvattupuzha, Muttathara and Monuppally are going on. Radar surveillance system
(Speed Camera System) was installed at Palakkad, Thrissur, Kollam, Kottayam, Ernakulam and Kannur. A
new initiative by the department is ‘Third Eye Enforcement”. Through the scheme, the public can assist
the enforcement team of the department by capturing and sending the traffic violation in terms of video
clips, images etc. in real time through an exclusive public web portal. Road Safety suggestions/feedbacks
from the public are also incorporated in this project.

Figure 33: Percentage distribution of Motor Vehicle, Kerala 2018

Buses
Goods Vehicle
1% Tractor/Trailers
5%
1%
3 Wheeler
6%

4 Wheeler
22% 2 Wheeler
65%

Source: Economic Review 2018, Kerala

4.6.2 Impact of 2018 Floods

The weather pattern, high population density as well as geographical location make Kerala highly
susceptible for natural disasters. The steep gradient along the Western Ghats, geographical location along
the long sea coast as well as the ever-changing dynamics of climatic conditions act as a risk factor for
disasters. Along with these the other biggest risk factor is the high population density in the State. In this
context it becomes important to look at one of the recent floods in the State that has had a devastating
effect on the lives and livelihoods of the people in Kerala.
According to the PDNA for Kerala conducted by UN, ADB, WB and EU; between July and August 2018, the
State received a cumulative rainfall that was 42% more than the normal rainfall causing one of the worst
ever floods faced by it. The torrential rains triggered nearly 341 landslides across the states with district
Idukki one of the worst hit districts. 1,259 villages out of 1,664 villages in these districts were affected by
the floods. The post flood impact analysis indicates heavy damages due to land slide/slips in the roads in
four hill Districts of Pathanamthitta, Idukki, Wayanad and Palakkad, whereas roads in the seven Districts
of Alappuzha, Malappuram, Kollam, Ernakulam, Kozhikode, Thrissur and Kottayam have sustained flash
floods, erosion, water stagnation and other flood induced damages.
The transportation sector was one of the worst hit sectors during the folds causing a standstill in the
Kerala. According to the Road and Buildings Wing, Public Works Department, Government of Kerala there
has been damage of about 580 km of National Highways, 2,004 km of State Highways and 13,246 km of
Major District Roads across the 14 districts in Kerala.

184
 Table 32: Length of Roads Severely Affected/Destructed (district-wise) due to the Floods

District Road Length Affected (in km) age %

Alappuzha 544.17 37%

Ernakulam 2140.89 27%

Idukki 3064.01 77%

Kannur 969.95 8%

Kasaragod 503.51 10%

Kollam 712.26 13%

Kottayam 1255.62 19%

Kozhikode 998 21%

Malappuram 947.37 12%

Palakkad 1327.48 23%

Pathanamthitta 549.04 12%

Thiruvananthapuram 677.48 15%

Thrissur 925.25 20%

Wayanad 634.86 2%

Source: PWD, Government of Kerala

The waterlogging due to the heavy rains caused the road and rail traffic to be worst hit. There was a
collapse of the public transportation in many parts of central Kerala. Additionally, there was a halt in the
Southern Railways and Kochi Metro as the waterlogging on the tracks affected the signalling. The
waterlogging in Kochi Airport also led to the shutdown of the airports.
Given this context it becomes important to understand how we can mitigate this situation by developing
a resilient transportation system in the State. Proper siting of critical transport nodes like airports are
crucial in building resilience.

Role of public transit agencies in emergency management: Public transit agencies have a history of
providing assistance during crisis situations, performing vital services such as evacuation of victims and
transport of emergency personnel and materials. In the aftermath of major disasters, public transit
systems have often supplemented or replaced damaged or blocked roadways that are impassable,
maintaining mobility for residents and for repair and recovery workers. Therefore, these are a critical

185
infrastructure especially in the case of evacuations and connectivity to essential services such as hospitals,
etc. Multi-modal transit systems create alternative means of travel if the predominant means of
transportation (roads) is damaged.

4.6.3 Major Legacy and Current Issues

Kerala is one of the well-connected states in the country having a road density of 590.14 km / square km
which is much higher than the national average of 387 km/square km93. Additionally, it has an inland water
transportation system and well- connected rail and airport system. But despite that a multitude of factors
pose as a challenge to the transportation in Kerala. These factors can be broadly categorized into climatic,
topological and demographic factors that can contribute to the problems in transportation sector.

Table 33: Factors that contribute to challenges in the transportation sector

Factors Problem in Kerala

Topological Kerala has an extremely hilly terrain nearly 90% of the terrain is hilly
which acts as a challenge for the transportation sector

Climatic Kerala has a wet and humid weather and also faces the challenge of
increase in sea level due to climate change

Demographic Kerala has witnessed increased rural urban continuum over the years.
The increased rate of urbanization added an immense pressure on the
existing infrastructure and resources.

Increasing trends in personal vehicle registration

Indian cities are currently witnessing Number of Personal Vehicles registered (in
increasing ownership of private vehicles and Lakhs) Source: Motor Vehicles Department, GoK
decreasing use of public and non-motorized 110.00
transport94. National level statistics show that
100.00
share of the Public transport has fallen from
60-80% in 1994 to 25-35% in 2018 while the 90.00
share of private vehicles has increased by 33%
from 2016 to 201795. In 2017-2018, 87% 80.00
(104.78 Lakh) of the new registrations were
70.00
that of personal vehicles96. 2014 2015 2016 2017

93
Economic Review 2018, GoK, pg. 380
94
Moving Forward Together, Niti Aayog 2018
95
Booming sale of cars, bikes slams brake on public transport,
http://timesofindia.indiatimes.com/articleshow/65649614.cms?utm_source=contentofinterest&utm_medium=text
&utm_campaign=cppst) (Accessed on: 24 Feb 2019)
96
Motor Vehicles Department, Government of Kerala

186
With the increase in share of private vehicles, there has been an increase in congestion, fuel bills, carbon
footprint and accidents. Similar trends are noticed in the State, too. As State income levels rise more
residents buy personal vehicles. There is an ever-increasing vehicle population that taxes the already
dense road network, triggering an increase in congestion, carbon emissions, and negatively impacting
climate change. There is a disproportionate investment in public transport infrastructure and efficiency
of the carrying capacity of public vehicle.

Deficient state-wide public bus transport systems and supporting infrastructure

According to the Kerala State Planning Report 2017-28, as of 31st March 2017, 44,291 buses had valid
registration of which around 25,000 buses are on road with majority of its operating in urban areas. Kerala
State Road Transport Corporation (KSRTC) owns a fleet strength of 5,795, operating 5,047 schedules on
7548 routes. The number of buses required per 1,000 people depends on a variety of features including
mode share, people’s tendency to take bus journeys, average length of travel, effectiveness of bus system,
etc.; however, the typical range is between 0.5 and 1.2 per 1,000 population97. In Kerala’s case that would
be in a range of about 17,500 to 42,000 required buses for a population of 35 million. In Private sector
operated buses have a dominant share in intra-city services, with intra-state services being mostly
nationalized and operated by KSRTC. Considering that fleet owned and operated by KSRTC have remained
stagnant over last 6-7 years it can be concluded the share of bus transportation in the state road network
has been decreasing which is not a healthy sign for State’s aspiration for green economy.

Poor quality and lack of incentives to use public transportation

By better developing the quality of public transport available, as well as creating regular passenger
interchanges through well-designed, multi-modal transit terminals Kerala can aim to properly connect and
increase the coverage/ease of use of the public transportation network. Ensuring that all modes are
seamlessly connected to each other (physically as well as through the same e-ticketing system) will nudge
a modal shift in commuters as their confidence in reliable, end-to-end public transport options increases.
This is a friction point that usually causes a breakdown in the utility of pure public transportation
dependency. Other options to increase incentives for public transportation include subsidies or an
increase in taxation of private vehicles. These will contribute to a modal shift, at the very least encouraging
existing and future car owners to use their cars less and consider alternative means of transportation that
may be cheaper and more convenient. Future investments in roads and the core Strategic Road Network
(16% of the total road network, carrying about 80% of road traffic), could support the public
transportation agenda by infrastructure investments and dedicated public transport corridors. Vytilla
Mobility Hub in Kochi is the first of its kind in the State to form a Special Purpose Vehicle (SPV) – Vytilla
Mobility Hub Society – for the execution of a Mobility Hub. An SPV had already been formed in Kottayam
and the land acquisition process is at advanced stage for the construction of Kottayam Mobility Hub.
Integrated Multi Modal Transit Facility is also recommended at major Cities such as Kozhikode, Thrissur,
Kollam and Thiruvananthapuram.

97
Note: This ratio may be dated as it was current as of 2006.
https://ppiaf.org/sites/ppiaf.org/files/documents/toolkits/UrbanBusToolkit/assets/1/1c/1c7.html

187
 Lack of investment in public transportation infrastructure
The State has been spending substantial funds on widening and improvements of the roads for increasing
the carrying capacity of the roads, the budgeted expenditure for Roads and Bridges in 2018-2019 was 1.45
lakhs (8% more than 2017-2018)98. Though the expected benefits are considerable, urban planning
practices prove that widening of roads in proportion to the increasing the traffic volume is not effective
in decreasing congestion, in fact it often encourages an increase on use. Therefore, instead of increasing
capacity of the already dense road network, it is worth exploring smarter ways to consolidate and move
people, as well as ways to encourage and incentivize a public modal shift and behavioural change from
private vehicles to public transportation that has a higher passenger capacity per vehicle.

Inadequate augmentation of road infrastructure

Kerala has a unique topology which can act as a hindrance to the transportation systems. About 90% of
the State has a hilly terrain because of which there are very narrow single lane roads present in the State.
According to the Kerala State Planning Board Report of 2018, almost 90% of the roads are single lane.
There is inadequate width to address the existing level of traffic in the State as only 25% of the roads have
four-lane or two-lane capacity roads and the remaining have single or intermediate lane capacity. In case
of National highways there is only 12% of the roads with four lane capacities. The bulk of the interstate
and inter city traffic is carried by the National and State Highways which are only 8% of the total network.
Thus, this acts as a challenge for the transportation sector99.

Opportunity for growth in rail

The railway lines in the State run straight lengthwise connecting all the major towns and cities in Kerala.
The State has a rail network of 1,257 km route length with a total track length of 1,588 km, operating
under the control of Palakkad and Thiruvananthapuram Railway Divisions. The Palakkad Division operates
76 express and 49 passenger trains, carrying 2.16 lakh passengers per day while Trivandrum Division
operates 80 express trains and 60 passenger trains every day, carrying 2.6 lakh passengers daily100. Both
these Divisions together contribute about one-third of the total revenue earnings of Southern Railway.
The rail sector has not shown much growth over the years. There are about 200 railway stations in the
State that connect most of the major destinations within the State. Given Kerala’s linear form and
numerous large urban centres there is the potential to increase rail capacity by constructing a high-speed
railway corridor through the State.

Reduced dependence on the inland water network

Even though Kerala has a water network of more than 1680 km only 20% of it is in a usable condition.
There are about 81 passenger boats operated in this system. Most of the feeder canals and waterways
suffer from navigational hazards like shallow depth and narrow width of channel during dry weather,
siltation, bank erosion and absence of infrastructural facilities like jetties/ terminals and inadequacy of
navigational aids. Because of these conditions this is not adapted as a preferable mode of transportation
by the citizens.

98
Economic Review 2018, GoK, pg. 379
99
Economic Review 2018, GoK, pg. 381
100
Economic Review 2018, GoK, pg. 394

188
 Unorganized Intermediate Public Transport (IPT)
IPT modes consist of taxis, auto-rickshaws and minibuses/ tempos. Being an unorganized transport sector
(free entry in the market), IPT modes continue to play an important role in providing first mile and last
mile connectivity (10% share) due to their speedy and timely availability and ability to penetrate into every
nook and corner of the region they are serving. It also provides job opportunities for the weaker sections
of the society. The advent of online taxi aggregators in the IPT sector have heralded an open competition
with auto-rickshaws and Motor Vehicles Department has taken the initiative to implement GPS tracking
systems to monitoring the system. There is an opportunity for e-autos/taxis to assist with last-mile issues.

Poor Non-Motorized Transport (NMT)

As part of City Development Plan, pedestrian facilities and amenities have been provided along major
corridors of Thiruvananthapuram, Ernakulam and Kozhikode Cities. All other cities in Kerala lack
pedestrian facilities and amenities. The existing pedestrian network (and public transportation system)
lack providing proper access to elderly population or differently abled peoples. The share of cycle trips is
on the decline owing to advent of fast-moving vehicles and lack of facilities for cyclists like cycle track,
cycle repairing facilities etc.

Congestion in the metropolitan areas

Kerala is one of most urbanized states in the country with nearly 48 % of its population living in urban
areas spread across 87 municipalities and 6 corporations101. The cities lack integrated and strategic public
transport planning resulting in high level urban congestion, emissions and loss to economy. The transport
sector in Kerala is highly dependent on fossil fuels and is one of the major sources for air pollution,
especially greenhouse gas emission, which needs to be controlled and reversed.

Road safety
Road Safety has been a perennial challenge for Kerala. The number of road accidents, major injuries and
deaths due to road accidents has been increasing over time. According to the statistics published by Kerala
Police in 2018, there were 40,181 accidents, 4,303 fatalities and 45,458 injuries which translated to high
accident severity index of 12.8 deaths per lakh population. Statistics indicate that lack of enforcement is
one of the leading causes of road accidents and needs a targeted action plan. The MVD department has
recently launched “Safe Kerala” programme based on the success of Safe Sabarimala with the objectives
of curbing road accidents and fatalities and to induce a disciplined road culture in the State. The initiative
primarily focuses on strengthening the enforcement wings of the motor vehicle department with modern
control rooms in each district, 24/7 patrol and enforcement through appropriate resources and tools (such
as radar fitted interceptors with Lux, Alco and Sound meters, patrol vehicles, surveillance/speed cameras).

101
Census of India, 2011, GoI

189
 Figure 34: Road Accidents in Kerala

60000

50000

40000

30000

20000

10000

No. of Accidents No. of Deaths Total Injuries

Source: Department of Police, Government of Kerala

4.6.4 Proposed Approach to Resilient Rebuilding

Kerala is turning the crisis into opportunity by taking strategic preparedness and adaptation in the form
of transport resilience. Transportation resilience refers to the ability of transport system to operate,
function and enable people to move or commute around, in the contempt of one or major obstacle.
Currently, Kerala has multiple departments/agencies executing multiple modes, the State needs to
incorporate transport resilience in their transit agency policy, planning, asset management, capital
investment, maintenance and respective operations–along with the safety, security and customer focused
services. The resilience can be focused from two broad perspectives i.e. operational resilience and
infrastructure resilience. ‘Operational’ resilience is rooted in customer focus and endeavours to keep
services running safely, even under adverse circumstances. On the other hand, “infrastructure” resilience
is rooted in the agency’s physical planning, material and asset management framework.
Both ‘operational’ and ‘infrastructure’ resilience ensures to absorb the effects from disturbances that are
caused due to several reasons and safeguards operational continuity or at least minimize the damage and
help recuperate quickly. The resilient planning perspective of Kerala needs consideration of the following
levels.102
1. Individual Level: Transport resilience at individual level will ensure that people can get around if the
person’s vehicle breaks down, or if the person is injured, becomes disabled, or suffers a loss of income

102
What is transport resilience? https://rideamigos.com/transportation-resilience/ accessed on 22 February 2019.

190
2. Community Level: Transport resilience at communities’ level will ensure, that the public transits are
accessible or there are alternatives, and that traffic can continue to move despite of accidents,
emergencies, seasonal construction projects, or special events
3. Design Level: Transport resilience at design level, will ensure that the transportation systems have
specific built-in features to deal with extreme levels of demand and critical, unexpected problems
4. Economics Level: Transport resilience at economics level will ensure that transportation system will
continue functioning even if an important resource, such as oil or gasoline, becomes unavailable or
prohibitively expensive
5. Strategy Level: Transport resilience at strategy level will ensure that the transportation system is
created to accommodate future growth and possible changes for future usage or access patterns

Figure 35: Transport Resilience perspectives

Transport
Resilience

In an article of TRB ‘Resilience in a Transport System- A Whole System Approach’ by Ryan Martinson103,
the author discussed about the resilience value and how it is significant to gauge resilience in the system.
Attempt has been made to review the resilience values in respect to Kerala.
Table 34: Resilience in Kerala's Transportation Sector at a State and ULB Level

Resilience Value Possible outcome in Kerala’s Transportation sector at state and ULB level

Diversity Land-use Transportation Planning

Multimodal transportation planning

Ecological variability Agencies to adopt Environment Management System

Modularity Improving Street network and accessibility

Improving First Mile and Last Mile Connectivity

Acknowledging slow Long term planning to cater the traffic and transportation need for coming 10-
variables 15 years. Phasing out Transportation Planning

103
Resilience in a Transport System- A whole System Approach; Transportation Systems Resilience- Preparation,
Recovery and Adaptation, TRB, November 2017, Pg. 13

191
 Resilience Value Possible outcome in Kerala’s Transportation sector at state and ULB level

Tight feedbacks Piloting projects to test potential outcomes

Monitoring and evaluation programs feeding into new development and
planning procedures

Social Capital Place-making- Connecting communities

Meaningful engagement with stakeholders

Innovation Intelligent Transport Management System

Transport Demand Management

Overlap in Stronger emphasis on participatory planning and community engagement

Governance
Regulative frameworks/ guidelines
Policy intervention

Ecosystem Services Equitable allocation of mobility investment

Life-cycle cost accounting or full cost accounting that aims for include more
externalities associated with infrastructure

The subsequent sub topics illustrates some of the Resilience Value- ‘diversity’ and ‘modularity’ as part of
‘Resilient Transport Planning for Kerala’. Followed by ‘innovation’ as part of ‘Technology as a tool for
Resilient Transport’, and finally ‘Overlap in Governance’ as part of ‘Single Statutory Authority for Resilient
Transport’. While the remaining resilience values have be addressed as part of the sub-topics below.

Figure 36: Conceptual representation of Resilient Transport

Technology

Resilient
Planning
Transportation

Institutional

Restructuring

Resilient transport planning for Kerala

Key objectives: To increase the market share of environmentally sustainable modes of transport, by
offering convenient, comfortable, and economic public transportation options. Increase efficiency and
long-term sustainability of transportation provisions for citizens by 2030, taking into account ecological,
social and cultural perspectives. In turn reducing congestion and increasing mobility.

192
Guiding Principles:
1. Resilient Transportation: Increasing the strength, connectivity and options provided by public
transportation, thus creating a network of public transportation systems that rapidly regain function
after disruptions or disasters.
2. Efficient and Effective Systems: Improving journey times, connections, quality, and reliability.
3. Green, Climate friendly, and Environmentally sustainable: Reducing negative environmental impacts
on air quality, greenhouse gases, fuel consumption, noise, etc.
4. Prioritizing Equity: Planning with accessibility and social inclusion in mind (of elders, differently abled,
socio-economically disadvantaged, etc.)

Key elements of approach:

 Making connections: Multi-modal transportation systems that are integrated physically and through
the ticketing system. All public transportation should build upon itself (e.g. connect buses, metro, rail,
water networks, IPT and NMT, etc.). This will allow peopled to move easily between systems and
contribute to realizing the full potential of public transportation.
 Addressing infrastructure gaps and points of friction in the existing system.
 Revamping the Bus System: Increase the functionality, desirability and profitability of buses for the
public users as well as the State.
 Safety: Reducing accidents and improving security
 Technology: Tools such as ICT to allow for real-time tracking, ease of payment, mining big-data to
create more efficient transportation routes, etc.
 Finance: Improve transport economic viability for business users and transport providers, to improver
transportation economic efficiency for consumers, and to provide wider economic benefits through
service.
 Public Communication Strategy: After creating a revamped public transportation system there should
be communication on how public transportation can be a reliable, convenient, comfortable, and even
economic alternative to the car.
 Integration with Land-use policy: To ensure that transport and planning work together to support
more sustainable travel choices and reduce the need for travel through strategic land-use codes.

Major transportation planning aspects such as, ‘Land use and transportation planning, Improving Street
Network- Accessibility, Integrated Multi Modal Public Transport System and First and Last mile
connectivity’ has been reviewed for Kerala. The approach has been divided into two parts; 1. ‘People
Centric Planning’ and 2. ‘Transport Resilient Planning’. The ‘Transport Resilient’ considerations have been
further reviewed under ‘Infrastructure’ and Operation’ perspective.

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 Table 35: Aspects of Transportation Planning

1. Land Use and Transportation Planning

People centric planning Transport Resilient Planning

 Integrate the land-use and transportation Infrastructure Perspective;

planning- to enhance community development
 Build network type compact city - multi zonal,
 Consider long term sustainability by altering the multi nuclear urban structure etc. to reduce and
urban structure distribute the pressure
 Reduce and redistribute the transportation  Reduce development in high risk areas; and re-
demands that are concentrated to city centre, to focus investments in “high and dry” areas that
sub city/ satellite city/new business centre etc. have the potential to increase economic
Adapt Travel Demand Management tools and opportunity104
etc.
 Incorporate Environment Management System
 Focus on Public Transport, ToD, NMT, and safety and other tools to plan a robust, flexible and
features responsive system
 Ensure stakeholder/agencies/departments to
commit to resilience goal from time to time
 Ensure well-functioning drainage system

Operation Perspectives
 Enhance the power system (used for the
operations of transportation system)
 Ensure robust control- communication- location
system, that addresses critical operations of
transportation system
 Ensure planning and management of railroad track
maintenance equipment, crane, ambulance etc.

2. Improving Street Network, Accessibility- Infrastructure

People centric planning Transport Resilient Planning

 Improve street network connectivity to help Infrastructure perspective;

reduce the volume of traffic and traffic delays
 Plan a quality infrastructure to withstand the
on major streets (NH17, 47, 49, 208, 212, 213,
adverse calamities economically or handle sudden
220, 47A and 47B, other arterials and major
demand
collectors)

104
https://www.100resilientcities.org/planning-for-resilience-innovative-land-use-policies-for-building-a-resilient-
city/

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 Improve street network connections within  Ensure alternative routes and provision of
individual developments, between broadcast during evacuation or emergency
developments, and by having a well-planned
 Ensure infrastructure upgradation (for instance
collector road network to compliment the
raising the level of the road or switching from
arterial highway network
unpaved to paved roads)
 Improve rural-urban street network connectivity
 Increase the frequency of maintenance of road
and quality
and supporting infrastructure
 Improve the built and design quality of streets
 Ensure well-functioning drainage system
 Equity in road infrastructure- for motorized,
 Reinforce slopes
NMT and pedestrians
 Encourage short block lengths, numerous three
and four-way intersections, and minimal dead- Operation perspective;
end  Ensure signage and appropriate design element to
 Increase the effective RoW- with proper road manage traffic volume
design elements to cater the existing and future Adopt ITMS for real time information to the
demand commuters, about weather, alternative route,
 Adapt design, innovative solutions and traffic congestion, or display/convey of important
technology for traffic calming messages
 Develop Local Area Access Plan (LAAP)  Implementing traffic rules to make sure the most
important vehicles can go through while others
can take an alternative route

3. Integrated Multi Modal Public Transport System

People centric planning Transport Resilient Planning

 Interlink various transport modes from user Infrastructure perspective;

point for seamless travel
 Agencies/departments to follow Emergency
 Ensure physical integration facilitating direct, Preparedness Planning and Procedure- Assess the
comfortable, convenient, safe access to public economic, social, environment and energy
transport (providing safe, direct road crossings, dimension from safety and security perspective for
tree-shaded paths, refreshments, cycle/vehicle all individual modes and interchanges
parking, access points and pavements for
 Agencies to upgrade infrastructure and revise
differently abled
operational procedure when needed
 Ensure fare integration—enabling unified
payment system
Operation perspective;
 Ensure route integration—facilitating logical

interchange points where passengers are able to Ensure sub-stations/ generators for power supply
transfer from one vehicle or mode to another to be elevated above the flood levels and remote
conveniently and safely safe house, outside flood prone areas. To be
operated by mobile command
 Ensure information integration—enabling a
‘one-stop-shop’ for public transit users, cyclists,

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 and walkers to gain journey information using  Provision of shade, shelter and protection for
these modes commuters at interchanges during emergencies
and otherwise
 Ensure institutional integration—ensuring that
different public transit providers see themselves Ensure action plan to move transits to a safe,
as part of a network and provide links to other elevated location, outside flood prone areas in the
types of transit, walking, and cycling105 hour of need to lessen the damage
 Adaptation of smart and fully integrated ITS
solutions – for operators and passengers

4. First and Last mile connectivity

People centric planning Transport Resilient Planning

 Reduce the gap (travel time/distance) between Infrastructure perspective;

destination and public transit node, effectively
 Ensure alternative routes for ease of accessibility
and efficiently
 Ensure infrastructure upgradation – including road
 Organize the Intermediate Para Transit
network and drainage
 Ensure accessibility and connectivity for
 Increase the frequency of maintenance of internal
pedestrians, cyclist and other Non-Motorized
roads and collector roads
Transport users
 Ensure clean and efficient drainage system
 Consider Local Area Access Plan (LAAP)
 Reinforce slopes
 Consider efficient use of technology to eliminate
first mile and last mile issues
Operation perspective;
 Consider efficient use of technology to eliminate
first mile and last mile issues
 Focus on signage and way finding-Agencies to
carefully present information, focusing on clarity
and simplicity

Technology as a tool for resilient transport

Kerala’s transport sector needs a better integration and application of technology for efficient, effective
and real time management. Effective traffic management using ITMS can reduced congestion, leading to
reduced journey times, fewer delays and increased free flow of traffic around the city. It also improves
the air quality as a result of less congestion and the associated pollutants which impact on health. It also

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Multi Modal Transport in a Low Carbon Future
https://www.dimts.in/download/Multi_Modal_Transport_in_a_Low_Carbon_Future.pdf

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impacts the accidents through more effective traffic signaling and the introduction of more advanced
safety mechanisms for pedestrians. By supporting the free-flow of traffic and lowering congestion, the
ITMS would also create reserve capacity in the system, for use in the event of sudden shocks or calamity.
ITMS assist operators in predicting and managing problems, ensuring quicker response times and
increasing preparedness, by drawing a greater wealth of data from the entire network. The integrated
nature of this system offers a range of benefits that would be precluded from a disconnected or un-
integrated system. These includes;

 Greater capacity for control and manipulation by operators, greater ease of product integration
 Greater capacity for data gathering and analysis and an increased opportunity for modal shift
 Traffic and transport simulations
 Advanced traffic management and bus operation systems
 Smart traffic signals
 Digital cameras for street surveillance
 Gprs, and advanced communication equipment

The transport management system would integrate a modern Urban Traffic Control (UTC) system with
modular sub-systems, such as;

 Real-time control of traffic signals from one central location using a UTC system
 Fiber optical connections or wireless mobile networks combined with Internet Protocol (IP)
technology to transfer encrypted data from the controller to the central system. This would also
distribute real-time traffic information to Variable Messaging Signs on the roadside, as well as TV,
radio, and mobile applications
 Induction loops, radar, magnetic sensors or Passive Infrared (PIR) to detect traffic volume and speeds
including in some cases, vehicle types
 Automatic Number Plate Recognition (ANPR) systems to identify the travel time of vehicles across a
specific distance
 Variable message signs (VMS) including full-matrix LED displays to distribute information to travelers
about travel times and conditions on the route.
 Geo-referencing using data from devices installed across the city – including on vehicle counts, speed,
parking space utilization and weather – to map network conditions in real-time using Geographical
Information Systems (GIS)

ITMS offers a variety of technological solutions to the growing surface transportation and traffic problems.
The implementation opportunities are not just limited to traffic congestion control and information, but
also applicable for road safety and efficient infrastructure usage.
In the context of Kerala, ITMS could be unveiled in city bus systems in order to bring about a new
generation of comfort buses that facilitate connected inter and intra city public transportation. It can help
city bus agencies rebrand as a high-tech reliable, efficient, and comfortable form of public transportation.
ITS can be adapted in various forms to enhance the performance and the level of transit services to
passengers, thus attracting them towards public transport. At the same time, technology can significantly

197
enhance operational efficiency. The technology could be used for the various uses within the day-to-day
urban bus transport operation (largely data collection, electronic-ticketing, and communications), as well
as for analytics and subsequent real-time updates (of scheduling/dispatch, headway modifications,
responding to passenger demand, implementing traffic signal priority for public vehicles, etc.).

Single statutory authority for resilient transport

Kerala to have a special single statutory authority for urban transport similar to UMTA (Urban
Metropolitan Transport Authority,) that will coordinate all the urban transportation functions, such as-
policy formulation, strategic planning and programming, project preparation and approval, project
implementation, operations and management, regulatory, funding and research and development- both
private and public. The far-reaching role will be to ensure the resilience measures- effective
implementation and executed on ground. The special single statutory authority for urban transport should
evolve with time and can be set-up (a) through an executive order; (b) under the provisions of an existing
Act; (c) by its own special Act.
Roles of special single statutory authority for urban transport106:
 Assist and advise government on urban transport matters
 Prepare, adapt and administer urban transport policies, strategies, standards and guidelines for the
urban area under its jurisdiction.
 Prepare a multi-modal transport master plan integrated with land use
 Prepare a Comprehensive Mobility Plan (CMP)
 Prepare a detailed multi-year programme for urban transport
 Monitor and audit compliance with the Transport Master Plan, the CMP and the Multi-year
Programme
 Approve urban transport projects and activities
 Promote development of integrated facilities and systems for urban transport
 Oversee operation of integrated facilities and systems for public transport
 Contract public transport services so as to provide mobility and integrated public transport
 License (issue permits for) public transport services
 Monitor and advise on fees and charges for roads, public transport, parking, and other public
transport facilities and services and regulate fares for urban bus services
 Enforce regulations for which UMTA is responsible
 Fund, or arrange / recommend / approve funding for, urban transport infrastructure in whole or in
part
 Monitor and Audit use of UMTA funding
 Maintain records relating to urban transport, including details of projects, services, funding, and
public transport safety
 Develop and manage local performance indicators for urban transport
 Monitor and advice on public transport safety
 Conduct research, studies, education and awareness about good practices in urban transport

106
Developing Operations Documents For Urban Metropolitan Transport Authority (UMTA) And Urban Transport
Fund (UTF) PC1B 1, MoUD, GoI

198
The comprehensive role would be to prepare, adapt, administer and communicate the ‘urban transport
resilience’ -policies, strategies, standards and guidelines for the urban area for Kerala and ensure
enactment and effective application within time frames (e.g., immediate and short-term operations and
response versus long range systems and capital planning).

4.6.5 Specific Interventions

Emergency Management Plans

Institute Emergency Management Plans for Public Transit agencies to determine how and when they can
provide assistance to emergency response, while keeping their personnel, passengers, and resources safe.
Establish connections to police, fire, and other emergency response agencies.

High speed corridor- A socio- economic development tool for Kerala

The high-speed corridor connecting the districts of Kerala longitudinally will act as a growth engine for the
socio- economic development of the entire state. It will act as a social cohesion among residents as it connects
the entire state and promotes a sense of togetherness, by bringing distant populated areas close together.
From the planning point of view, it will facilitate new growth of multi zonal, multi nuclear urban structure in
and around, to reduce and re-distribute the pressure from the existing urban spaces. From the resilient point
of view, the corridor will open avenues to connect “high and dry” areas that are safe and have the potential to
increase socio-economic opportunities of the State. Integrating the multimodal transportation along the
corridor will create ripple of growth and facilitate better connectivity with the surrounding. From a connectivity
point of view, a high-speed corridor will connect the airports, health facilities, institutions, cultural amenities,
and commercial nodes.
Along with the social benefits, the corridor will also stimulate long term economic benefits - encourage
commercial and industrial growth in, around and along the corridor. This will create employment opportunity
and also widen employment opportunity. Besides connecting the entire State, it will also reduce the travel
time, improve energy consumption, encouraging high density, mixed-use, and real estate development along
the corridor and around the transit nodes. It will also foster economic development in tier-II & III towns along
the corridor and also create new growth centers. The corridor will also expand tourism opportunities. Overall,
the high-speed corridor will integrate the districts that can function as a single stronger economy.

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 Figure 37: Characteristic and conceptual diagram for transport resilient high-speed corridor

Table 36: Transportation Actions and Results Framework

Activities 0-6 0-18 18 months Expected Outcomes

months months & beyond
Policy / Regulatory

Institute Emergency Management Plans X Public agencies provide

for Public Transit agencies assistance to
emergency response.
New connections
established to police,
fire, and other
emergency response
agencies

200
 Activities 0-6 0-18 18 months Expected Outcomes
months months & beyond
Comprehensive Transportation X X Comprehensive long-
Strategy/ Master Plan developed on the term plan for
development potential of an integrated integrated
multi-modal transport system. transportation systems
through the State. Less
dependence on private
vehicles.

Institutional

Establishment of a Transport Sector Strategies to solve

Reform Group in the Transport Secretariat some of the outcomes
that includes a broad list of issues like pertaining to some of
Public Bus Transport Policy, Congestion the issues pertaining to
Charge policy in Cities, Road side transportation can be
Advertisement and Parking policy (to X achieved
ensure adequate and disciplined parking
and thereby ensure road safety), Bus
Route Rationalization, Private Bus
Contracting Models, State logistics policy,
safe Sabarimala etc.

Modify the Kerala Metropolitan Transport Make the KMTA similar

Authority Bill to incorporate aspects to the UMTA and the
regarding: various deficiencies in
the same have been
 The bye laws, rules and laws to be merged
overcome
with KMTA needs to be identified
 In terms of funding there needs to be a
mention of the funds ratio or the details X
regarding funds allocated by the State
Finance Commission reports
 More details regarding the integrated
public transport needs to be mentioned

Approval of the Kerala Metropolitan X Create a unified KMTA

Transport Authority Bill which is similar to along the lines of
that of the Unified Metropolitan Transport UMTA as prescribed by
Authority the National Urban
Transport Policy 2006

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 Activities 0-6 0-18 18 months Expected Outcomes
months months & beyond
Capacity building and Reskilling of Ongoing Officials are skilled with
department officials with the latest the necessary skills that
transportation. can help in better
planning for the cities

Investments Planning
Action plan prepared for enhancing public Action plan prepared,
bus Transport on State Road network with with potential for
focus route rationalization, bus phased interventions.
contracting models for inter-city X
operations, transport tax reforms, public
transportation subsidies, and dealing with
urban congestion.

Study of existing land-use transport X Analytical observation

Scenario- - demographics, employment of existing situation,
characteristics, identification of other identifying the gaps,
upcoming developments in the area, gauging the potential
existing and proposed land use, current need of high speed
challenges, best practices, institutional corridor
structure, policy, pipelined projects, assess
existing public transit, review of
contextual and planning issues as well as a
detailed investigation of transit service
and infrastructure.

Preparation of conceptual plans of high Holistic understanding

speed corridor on the basis of a 10-year X of long term need
projection

Valuation of existing & required X Valuation and

infrastructure, assessment of net required feasibility of the project
infrastructure, from the point of view of
optimal re-deployment of existing
resource

Draft feasibility report of high-speed X Feasibility Report

corridor for Kerala
Conduct a stakeholder meeting X Stakeholder
consideration

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 Activities 0-6 0-18 18 months Expected Outcomes
months months & beyond
Final Report on high speed corridor for X Final Report
Kerala
Formation of SPV for project X Plan Implementation
implementation
Analyse and operationalise pilot schemes X Best practices for
for Intelligent Transport Management future implementation.
Systems, targeting one or two areas (such
as bus network efficiency, or congestion
control, etc.)

4.6.6 Technical Studies and Assessments

Table 37: Transportation List of Studies

List of Studies 0-6 0-18 18 months

months months & beyond

Policy / Regulations

Developing an Integrated Road Transport Strategy for connected multi-

modal transportation systems through the State. Plan should take a
X
long-term approach to catering to transit demands.

Institute Emergency Management Study for Public Transit agencies to

determine how and when they can provide assistance to emergency
X
response

Study of opportunity for PPPs in Transportation Sector in Kerala X

Strategy for Enhancing public bus Transport on State Road network with X
focus route rationalization, bus contracting models for inter-city
operations, transport tax reforms, public transportation subsidies, and
dealing with urban congestion

Analysis of potential of Land Value Capture as revenue generation for X

public transportation investments

Investment

Strategy for operationalizing an Intelligent Transport Management X

System

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List of Studies 0-6 0-18 18 months
months months & beyond

Study on revenue generation potential of implementing Land Value X

Capture for public transportation investments

Preparation of feasibility report of high-speed corridor on the basis of a X

10-year projection

Mix of All

Other Supports in terms of workshops, advanced seminars, reskilling of

departments, study visits to other States, individual consultants for
X X
drafting of technical guides/manuals, training of PWD staff

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4.7 Forestry

4.7.1 Introduction
Kerala has a forest area of 1524.41 sq. km., or approximately 29% of the total area of the State. Of this,
9339.18 sq. kms. are reserve forests, 1,900.98 sq. km. are vested forests and ecologically fragile lands and
284.21 sq. km. are proposed reserve forests. Over the decades, forest cover in Kerala has come down
significantly. Prior to independence, more than 90 % of the geographical area along the Western Ghats,
more than 75% geographical area along the midland and more than 60% geographical area along the coast
had luxuriant forest vegetation. But, after independence, encroachments in the forest areas amplified.
This continued till the early 1970s, reducing the extent of forest very drastically.
There was a perceptible shift in wildlife conservation in the Seventies, starting with the increased number
of Protected Areas, as a result of the Wildlife (Protection) Act 1972 and the formulation of Wildlife Rules
in 1978. Before 1956 if there was only Periyar Wildlife Sanctuary with an area of 777 sq.km, at present
3213.24 sq. km. of forest, which includes five national parks, two tiger reserves, two bird sanctuaries, one
peafowl sanctuary and one community reserve, is under Protected Area Network. In October 2007, the
Kadalundi-Vallikkunnu Reserve was declared the first community reserve in India for conserving the
biodiversity and cultural heritage of the area with people’s participation.107 Kerala forests fall under two
biogeographic provinces, the Western Ghats and the Western Coast. They are rich in biodiversity and vital
for environmental protection and a repository of rare and endangered flora and fauna.
Yet, forests face many challenges in Kerala today, starting with the pressures of high population and
population densities. The rapid growth of the economy of the State has put additional demands on forests.
With greater climate change and natural disaster related risks, Kerala forests are expected to face even
more challenges, as evidenced by the 2018 floods and landslides.

4.7.2 Impact of 2018 Floods

Although the 2018 floods impacted the midlands of the State more, it also affected the forest areas in a
considerable way. The impact on forest ecosystems was marked by soil erosion, loss of humus and
widespread destruction of the riverine vegetation. However, the number of landslides in the forests was
much less compared to the other areas in the high ranges.
Areas under the Ranni Forest Division, Shenduruny and Aralam Wildlife Sanctuaries, areas bordering the
buffer zone of Silent Valley, Mannarkkad, Malayattoor and Vazhachal Divisions were the most affected
due to heavy rain. The Kurichiar Mala in Wayanad (a hill of high value biodiversity) was the most affected
in the landslides that happened in forests. Reports of riparian forest damage occurred in the Chalakudy
main river (290 m, Orukombankutty – Vazhachal – Athirappilli), Karappra river (116 ha, Nelliyampathy-
Orukombankutty), Sholayar river 52.2ha (downstream of Sholayar Dam) and Parambikulam 13 ha
(Kuriyarkutty – Orukombankutty).
The Protected Areas in the State were comparatively the least affected. However, landslides occurred in
Kottiyur Wildlife Sanctuary and Karikombu in the Eravikulam National Park and some private areas in the
border of the buffer areas of the Silent Valley National Park. The post- flood observations in Thattekkad
Bird Sanctuary indicated a drastic change in the water bird habitats. The Periyar riverside of about 14-15
Km in length was almost completely destroyed. The water bird habitat was filled with silt and sand and

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http://www.forest.kerala.gov.in/index.php

205
the feeding canal from the water reservoir was also filled up. Aquatic vegetation was washed away and/or
buried under sand. Feeding grounds were replaced with sand. The grasslands along the river bank were
also eroded. However, there were no major adverse effects inside the Sanctuary. Basic facilities in these
areas were also badly hit. Roads, culverts, bridges, forest department offices and staff accommodations
were damaged.
Many plantations and ecotourism centres were also badly affected by the floods. There are 60 such
centres under the control of the Forest Department. Among these, 23 centres under five Circles were the
ones that suffered the most. Many tribal sectors were cut-off from the main land due to landslides, flood,
mudslides and heavy rains. In different territorial circles, 131 settlements were adversely affected by the
deluge. The Forest Department was able to reach out to location that other departments could not access.
Overall, about 8850 people stranded in the flood were rescued by the forest officials. The following
problems were encountered by the Forest Department while undertaking rescue and relief operations:
 Breakdown of transport and communication infrastructure in places;
 Lack of disaster response mechanisms like satellite-based communication facilities;
 Paucity of finance;
 Inadequacy in scaling-up of rehabilitation efforts, especially those related to civil works, need of
technical skills in planning and execution within the department; and
 Inundated field offices and poor geographic locations of field offices in remote places that during such
disasters become a bottle neck in affecting quick response.
State’s forests, occupying about 29% of its geographic extent, did not adequately function as a percolator
of incessant rains and the flash floods, due to the soil system. Also, the forest areas were devoid of stable
multi-canopy vegetation which had given away and led to landslides. This, clubbed with fragmentation of
forests due to habitation and developmental activities, especially building of roads, has further degraded
the forest ecosystem. Due to inadequacies in disaster preparedness in the ecotourism destinations, the
infrastructure suffered heavily, leading to closing of these sites for many months, thus affecting the
livelihood of the local communities adversely.
Lack of integrated conservation and protection of the extremely vulnerable coastline of the State was
evident. Soft protection measures like bio-shields in the ecologically sensitive areas based on the hazard
line concept developed by the National Centre for Sustainable Coastal Management, Chennai which has
taken into account the average of 100 years of flood data and provided an overview of the vulnerability
of coastal line to natural calamities has not been undertaken so far. The protection and conservation of
the coastal environment which rests with the Kerala Coastal Zone Management Authority (KCZMA), which
has no field level functionaries for either management of the coast or enforcement of the coastal zone
regulation (CRZ). This has led to violations in the CRZ regulation and heavy encroachments along the coast.
Kerala has 1726 wetlands, as per the Space Application Centre report, which include coastal wetlands,
forest wetland and manmade reservoirs. Even though wetlands are an important tool for flood control,
these were not managed adequately enough to be used for effective flood control. There are 44 rivers in
Kerala out of which 19 are tidally influenced. Despite Acts enacted to conserve and protect the rivers and
river banks (The Kerala Protection of River Banks and Regulation of Removal of Sand Act, 2001 and the
CRZ Notification 2019 wherein the No Development Zone of the tidally influenced rivers has been
specified as 50 meters) the rivers have not been able to discharge the function of flood control due to the
lack of an integrated approach in their conservation and protection. Even though the major rivers
originate from the forests, their protection outside forests is highly inadequate due to encroachments of
river banks and excessively removal of sand making them unfit for water retention, resulting in both
drought and flood.

206
As per the Kerala Forest Research Institute (KFRI), there are 5,924 quarries in the State covering an area
of 7156.6 ha with nearly 1378 quarries within 1 km from the Reserve Forests and 79 quarries with total
area of 85.83 ha within 500 meters from the Protected Forests.108 Quarrying in vulnerable areas
contributed in accelerating landslides at least in a few locations as the landslides were in slopes about 22
degree and most common between 22 degree and 28 degree. Destabilization of slopes by cutting and
creating escarpments more than 3 meters for construction is mentioned as major cause for vulnerability.
During the floods, 341 landslides were reported, out of which 143 were in the Idukki District; 209
landslides were reported from different forest divisions but the majority of the landslides were in the
fringes of the forest, indicating that forest fragmentation that was disrupting slope continuity was a major
factor contributing to the landslides. Most of the landslides occurred in human-occupied locations where
excavation of hillocks for roads and other constructions took place.

4.7.3 Proposed approach

Policy
Management of resilient, critical ecosystems (mangroves, coastal areas in CRZ-1A, wetlands, sholas,
grassland and other ESA) would be given adequate legal protection under Wildlife Protection Act 1972
and Kerala Forest Act. Under Aichi Biodiversity Targets, Strategic Goal – C, “by 2020, at least 17% of
terrestrial and inland water, and 10% of coastal and marine areas, especially areas of particular
importance for biodiversity and ecosystem services, would be conserved. This would be done through
effectively and equitably managed, ecologically representative and well-connected systems of protected
areas and other effective area-based conservation measures and integrated into the wider landscapes
and seascapes”.
Mangroves: Mangroves are vital coastal ecosystems that support the State’s resilience. While the
regulations fall under the Kerala Coastal Zone Management Authority (KCZMA), its management has not
been clearly assigned. As per the mapping of ecologically sensitive area by National Centre for Sustainable
Coastal Management, Chennai, mangroves cover 21.12 sq. km area in Kerala. Quick estimates reveal that
about 440 ha have been accorded legal protection and formally handed over to the Forest Department
for management. The remaining areas have not been clearly assigned or provided the necessary legal
protection. These mangroves are either on lands with the Revenue and other Government Departments
or on private lands. Presently, no management responsibility is assigned to these most sensitive
ecosystems.
According to the Central Government Order No.8- 16/2002-FC dated 21st August 2003, which was
accepted by the State Government, “13,223.31 ha of land not under the control of forest department at
present, shall be mutated in favour of the Forest Department and notified under Section 4 of the Kerala
Forest Act 1961, as reserve forest for better protection and management”. This includes 1160 ha of
mangrove forest available with the Revenue, other local authorities and private individuals in Kannur,
Kasargod and Kozhikode districts. Government Order G.O (R.T) 166/06/forest dated 25.03.2006 directs
acquisition of 50 ha of mangroves in 5 districts and extending legal protection under the Forest
Conservation Act. Through Government Order vide G.O(R.T.) 165/07/forest dated 28.03.2007, initial
financial provision was also allocated. This shall be extended and the required resources, both financial

108
by Sajeev, T.V. and Alex C.J.: Mapping of Granite Quarries in Kerala. India: A Critical Mapping Initiative, Forest
Health Division, Kerala Forest Research Institute, Peechi.

207
and human resources, shall be provided to the Forest Department to address this additional management
responsibility. This shall be implemented in a timebound manner.
Sacred groves: The State has a number of sacred groves managed by different agencies and private
individuals. There are normal groves as well. These are conserved mostly due to social belief and tradition.
At least a few of these critical areas are threatened because of demand for land. Forest Department had
initiated some programmes for protection by extending assistance to the concerned. However, there are
a number of sacred groves requiring attention and conservation measures. Actions will be initiated for
conservation of the sacred groves based on currently available information Further, information will be
generated wherever it is currently not available.
Urban forestry: Growing natural forests in urban landscapes and creating green lungs for the cities. Apart
from the beautification and becoming a public asset, such urban forestry would also facilitate better
groundwater retention and mitigation in instances of future floods.
Coastal afforestation: Even though the State is blessed with an extensive coastal zone across its length,
human habitations and civil structures have taken over much of this zone. Considering events like the
recent tsunami, the Forest Department role would be to strengthen the coastal zone for creating/
managing bio-shields, coastal belt plantations, with native species and without affecting the naturalness
of the coastal areas. This would be done with utmost care and based on a programme developed in
consultation with experts. A Government Order in this regard will be issued. Extension forestry (agro-
forestry) needs to be expanded in the revenue areas since most of the coastal zone areas are revenue
lands or under private occupation.
Revenue lands with the Government / departments harbouring, or capable of harbouring coastal eco-
systems like biologically active mud flats, coral and coral reefs, turtle nesting grounds, nesting grounds of
birds, habitats of horse shoe crabs, and other special habitats in the coasts designated as CRZ – 1A which
are environmentally more critical are to be given legal protection under the Wildlife (Protection) Act and
Indian Forest Act and Kerala Forest Act.
Wetlands: Proactive conservation of wetlands is essential to maintain their ecological character and
ensure the ‘wise use of wetlands’ through implementation of appropriate approach within the context of
sustainable development. This would also include monitoring the adverse changes in the ecosystem
structures and ecosystem services ‘in the zone of influence’ (which forms a part of the catchment area of
the wetlands or wetland complexes). As per the Wetland Conservation and Management Rules 2017, the
coastal wetlands are to be managed under the CRZ notification and the wetlands inside forest are to be
managed as per the Forest and Wildlife Act. Hence, the wetlands other than the Ramsar wetlands and the
notified wetlands under the SWAK, numbering nearly 53 out of the 1726 wetlands already mapped by the
SAC, shall be managed by the respective departments, including the Forest Department. The SWAK needs
to prepare a list of wetlands in the State and get all of them notified without any further delay.
Management of wetlands can be done with the active support of VSS / EDC members and the LSGD.
Rivers, riverbanks and riparian vegetation: A policy level decision shall be taken to ensure the protection
of rivers, river banks and riparian vegetation outside forest through appropriate programs like plantations
and geo-textiling of the river banks, stream banks, prevention of illegal sand mining and negating the
adverse impacts on the river and riparian ecosystems. These are to be monitored by the Social Forestry
Wing of the Forest Department. A Government Order to this effect shall be issued.
No further use of reserve forests land to meet the wood-based industries. Aichi Target 15 states that “by
2020, ecosystems resilience and the contribution of biodiversity to carbon stocks has been enhanced
through conservation and restoration, including restoration of at least 15% of degraded ecosystems
thereby contributing to climate change mitigation and adaptation and to combating desertification.” In

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the past, monoculture in the forests was promoted to provide raw material for wood-based industries.
This practice would be progressively terminated, and the such areas would be converted into thick canopy
forest over time. Apart from the meeting the existing contractual commitments, no new or renewal of
contracts for the supply of industrial wood would be done. All the forest lands that have been used for
monoculture need to be restored to their original natural vegetation status in course of time. A
Government Order stating this policy of the Forest Department would be issued.
Monitoring the seasonality of first order rivers: The presence of first-order rivers in the State, especially
in forests, shall be mapped and seasonality shall be recorded by using technology. A dedicated digital
application for Forest field staff to identify the first-order streams, measure their flows and take pictures.
A central monitoring system can analyse the data to help strengthen the water restoration capacity in
areas where it is necessary. This will be a dedicated project to address droughts and forest fires.
No new openings in the forests area would be permitted: Forest fragmentation has been identified as
one of the main factors contributing to the landslides. Given that, a policy banning any new openings is
required. In particular, no new roads will be opened within the forests. This would be institutionalized
through a Government Order.
No net reduction in forest land: Portions of Government-owned forest lands are at times diverted for
non-forestry purposes, following the provisions of FCCI Act. Since the Act provides for afforestation of
double the extent of degraded forests as one of the two options, the State shall go for the option of
converting equal extent of non-forest land as Government forest land so that there is no net reduction of
forest land. The Government Order already issued in this regard will be strictly followed.
Increasing Protected Areas: At present, the Protected Areas form about 8% of the total geographical
extent of the State. The Government has taken the step of providing the highest levels of legal protection
to the sources of the major rivers in the State by notifying their points of origin as Protected Areas. Such
Protected Areas are indeed more resilient than the other areas.
Limiting of disruptive activities in the vicinity of the forests: In the past, no development or disruptive
activities were allowed within 200 metres of the forest boundary. This has been reduced to 50 metres and
presently development activities are being allowed along the boundaries of the forest areas. Such
activities have direct and indirect impacts on the forests. In order to strengthen the resilience of the
forests, it is required to revert to the earlier limit of 200m. A sub-committee constituted by State
Environmental Impact Assessment Agency (SEIAA) has recommended for the same. This is particularly
relevant to critical activities like quarrying, construction of roads, dams-related infrastructure, pilgrim
facilities and other infrastructure. A Government Order by the Forest Department reinstating the 200-
metre protection would be issued.
Centre for Eco-Restoration: Restoration of abandoned quarry sites into a plantation area after the
extraction of minerals is a mandatory requirement of law under KMMC Rules, 2015. The same has to be
undertaken by the project proponent with the technical support of Centre for Eco-Restoration (CER) by
using the security deposit obtained under Rule 42 of the KMMC Rules, 2015. The security deposit under
Rule 42 of KMMC Rules, 2015 shall be considerably increased from Rs.10,000 to a higher practical amount,
considering the cost of restoration of the quarried land. The CER will be housed in the Kerala Forest
Department, which shall create a pool of experts from the Social Forestry wing, Kerala State Biodiversity
Board, CWRDM, KFRI and other related institutions, EIA experts etc. Centre will also facilitate the eco
restorations of areas affected with landslides as well.
Coordination between Forest and Tribal Welfare Departments: Welfare of the tribal and management
of forest are intricately intertwined. Managing them as two separate departments have created great
stress for both. Close coordination is required between the Forest Department and the Scheduled Tribe

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Development Department. Also, the tribal inside the forests and those in the periphery cannot be
managed separately. Both these Departments need to be integrated at the State level and below. Any
activity within the forest areas should be based on a written project document considering the impact of
such activities on the forests (EIA) and should have written consent of the Forest Department.

Institutional
Establishing an inter-sector working group on slope protection: In order to share information and
coordinate interventions to arrest potential landslides, an inter-sector working group would be
established. This would include the Forest Department (forest areas), Department of Soil Survey and
Conservation (watershed development), LSGD (human habitation), PWD (road infrastructure works) and
experts from the research institutions. This working group would develop an integrated approach using
the collective expertise within the Departments and also other research and educational institutes. The
working group would also draw from the best practices from national / international experiences. Proof-
of-concepts pilots would be designed and implemented in order to develop such an integrated approach.
Further, monitoring will be incorporated as a regular inter-sectoral activity among the Forests, Water
Resources, Power (KSEB), LSGD and other departments. This inter-sector working group would inculcate
the habit of factoring the forest conservation requirements into the planning process of other
departments who propose interventions in or in the vicinity of forest lands.
Landscape level approach: The recent frame work for management of the protected area network is
based on landscape level approach which needs inter sectoral linkages, integrated planning and
implementation at a landscape level, both within and outside the State where the landscapes converge.
Hence, the policy level decisions are needed to establish/strengthen landscape level coordination
committees comprising of relevant departments, both within the State and with the neighboring states,
which shall ensure effective implementation of various programmes and also work for effective disaster
response in the identified landscape units.
Ecologically Sensitive Zones in Protected Areas: Eco-sensitive Zones are declared in accordance with the
Environment Protection Act. Eco-sensitive Zones around National Parks, Wildlife Sanctuaries and Tiger
Reserves Act as a transition zone between areas of very high protection and little or no protection. There
are 23 Protected Areas in the State. These are buffer areas to be declared along the periphery of Protected
Areas and will act as a shock absorber for adverse impacts in the pristine ecosystem. Proposals have been
sent to Government to declare Eco-Sensitive Zones around protected areas for the State of Kerala. Many
Eco-sensitive Zones proposed around the Protected Areas would be strengthened further, in tune with
the Supreme Court Order in this regard.
Management of Myristica swamp: This fresh water swamp forest predominantly composed of species of
Myristica is found in 9 districts of Kerala. They are adapted to inundation by way of stilt roots and knee
roots. They are rich in biodiversity and are virtually living museums of ancient life and primitive
ecosystems and primeval forest. These swamps forests could provide better understanding of the
influence of climate change on the evolution of plants. These swamps have high watershed value and
because the bottom of the swamps is at or below water table, it serves as channel run-off into the ground
water supply helping in stabilizing the water table. During periods of heavy rain, a swamp can act as a
natural flood control device (Columbia Encyclopedia 1978). Hence, they need to be conserved and brought
under the management of Kerala Forest Department. This would be done through a Government Order.

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Control of invasive species: The invasives have a competitive advantage over the native species and have
favourable adaptive features to withstand limiting ecological conditions. There is a huge risk of increased
episodes of biological invasion in the post-disaster period. The newly exposed land substratum in landslide
areas will be favourable for various invasive plants. The rivers are high speed corridor for the spread of
invasive exotic plants downstream and form the major sustained source of propagules of these invasives.
Drought like conditions have also been reported in Wayanad and Idukki Districts and the extreme
biological stress condition could provide advantageous scenario for the spread of invasives in high lands.
As per Aichi Target 9 “by 2020, invasive alien species and pathways are identified and prioritized, priority
species are controlled or eradicated, and measures are in place to manage pathways to prevent their
introduction and establishment”. A policy level decision is needed for engaging the Vana Samrakshana
Samithies (VSSs) and Eco-Development Committees (EDCs) in eradication of invasive species as a priority,
operating both inside and outside the forest. This will also ensure livelihood for all those involved in the
aforesaid activity.
Incorporation of Climate Change and Disaster Management Plan in the Forest Working Plans/
Management Plans/ Tiger Conservation Plan: It is a fact that climate change, marked by reduced as well
as an erratic rainfall and temperature rise has increased the vulnerability of the State. For the people
residing within the forest as well as in the forest fringes, climate vulnerability has led to not only change
in land use patterns, but also in their way of life, loss of traditional varieties of food crops, migrations,
human wildlife conflict, loss of cultural values, lifestyle, habitation etc. Addressing climate change through
climate adaptation and mitigation measures taking into account the indigenous knowledge of local
communities is the first step in building resilience. Drafting Local Action Plan for Climate Change (LAPCC)
by the EDC and VSS members and integrating it into their micro plans which are approved documents with
5-year validity and also preparation of Annual Micro Plan with climate orientation will go a long way in
preparedness at grass root level and addressing to climate vulnerability and disaster response. This has to
be undertaken by all EDCs and VSS in the forest as well as the coastal districts. Accordingly, methodologies,
tools, guidelines, training materials and handbooks will be prepared followed by TOI and trainings. In
addition, VSSs and EDCs will be provided handholding support to carry out these activities in a phased
manner during the project period. There are 400 VSS and 190 Eco Development Committees. A few need
to be formed and institutionalized in the ecologically sensitive coastal areas. Therefore, a total of about
600 VSS and EDCs need to incorporate LAPCC into their microplans and implement the activities so
mentioned in their annual plans. This state –wide exercise shall be anchored in the Eco-development and
Tribal Welfare wing of the Kerala Forest Department and shall be implemented by the Divisional Forest
Officers within the project period of five years. The Forest Working Plans/Management Plans/Tiger
Conservation Plans will include a chapter on Climate Change and Disaster Management.

Investments
Restoration of all damages to the forest infrastructure: To restore the damaged infrastructure to their
intended use, for shifting the field formation to safer places where necessary and to strengthen the
existing network of forest roads, investments are required. Investment are also required to make the
Forest Department equipped with Automated Weather Stations, software and equipment for climate
prediction and weather forecast and development and purchase of digital applications.
Establishing and maintaining resilient forests: Resources are required to implement strategies to restore
natural vegetation (progressive move away from monoculture, removal of exotic / alien species, etc.),
establish and maintain soil-moisture conservation / watershed initiatives (from top-to-bottom) and
improve the maintenance of the physical infrastructure such as check dams, creation of natural gullies to

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enable flows without causing soil erosion. These activities will be taken up based on a written project
reviewed by experts in hydrology and geology.
Reducing forest fragmentation, minimizing human-wildlife conflict and enhancing connectivity in the
forested landscapes: In order to enhance the resilience of the forests, the dependence of the tribals on
forests should be reduced. Building their capability for alternative and sustainable livelihoods shall be
adopted. Further, voluntary relocation of forest dependent communities from deep inside forest areas
requires funds and technical assistance. This would enable these communities to relocate to safer terrains.
As the experience from the recent floods suggests, the evacuation of forest dwellers was one of the most
difficult tasks during the relief and post-flood operations and, further, many of the forest dwellers in relief
camps were reluctant to go back to their original habitations and preferred to stay in safer zones. A
proposal for acquisition of 13 estates has been presented to the Government. These estates are located
inside forest areas. Acquisition of these estates and restoration to the natural vegetation will not only
ensure continuity of forests, minimize disaster risks, reduce forest fragmentation and human-wildlife
conflict but also ensure compliance of the sustainable development goals (SDG 13 and SDG 15).
Strengthening GIS capacity within the Forest Department and its inter-connectedness with other spatial
information in other Departments: The utility of spatial information in building resilience cannot be
overstated. The GIS facilities in Forest Department were established about a decade or more ago. They
are outdated and do not have enough human resources. The technologies need to be upgraded and the
staff need to be exposed to best practices in this area. A detailed and scientific vulnerability mapping of
forest areas – both core and periphery – is done. It is also vitally important that the Forest Department is
connected to the Government’s Open Data Initiative and, in this regard, it is also important to collaborate
and associate with Institutions working in similar areas.
Building resilience in areas of visitation (Ecotourism, tourism and religious tourism sites inside forest):
Around 50 lakh tourists are visiting forest areas every year, including 5 lakh foreign visitors.109 At present,
there are no disaster response mechanisms in these sites. Investments are needed to build up resilience
of infrastructure, and disaster response mechanisms in terms of resources, equipment, training and
manpower. Places of mass tourism need to have disaster response cells, all weather vehicles, boats, etc.
The approved Master Plan needs to be implemented in places of religious tourisms inside forests. Electric
vehicles / NMVs need to be introduced in all ecotourism destinations to make them carbon neutral and
energy efficient.
Forest Sanitation: Major rivers originate from forests. Their protection inside forests is highly essential to
make them fit for water retention and play a mitigating or moderating role during droughts and floods.
Within forest areas, streams are mostly polluted by largescale dumping of waste by outsiders and tourists.
To contain dumping of waste and resulting water pollution at source and to augment the water retention
capacity of rivers, the Government constituted a task force for removal of waste from forest areas in the
State with Principal Secretary (Forest & Wildlife Department) as the Chairman [Vide Order GO(Rt)
No.406/2018/Forest dated 13-09-2018]. The Forest Department had initiated action to clean the waste
along roads, with emphasis on the 125 identified waste dumping points in forest, by engaging VSS and
EDC members, as a part of Project Green Grass. Its progress is monitored in monthly reviews by the Chief
Secretary.
Making infrastructure and visitation inside forest energy efficient – Disruption of power supplier during
natural calamity has prompted to introspect into making all infrastructure inside forest energy-efficient
by adopting to solar and hybrid energy. Even making all the settlements inside forest energy-efficient is a

109
Status Report on Ecotourism, Kerala Forest Department.

212
step towards building resilience for future calamities. Visitation to the forest areas also has to take into
account its carbon foot prints and minimize the same.

4.7.4 Specific Interventions

This section includes the list of interventions – policy, institutional and investments. The overarching
theme would be “all ecologically sensitive areas of the Western Ghats are to be clothed with natural
vegetation and they are to be accorded the highest levels of legal protection, so that in future the chances
of similar calamities are minimized.” The following is the table of interventions along with the proposed
time lines and expected outcomes.

Table 38: Forestry Actions and Results Framework

0-6 0-18 18
months months months
Activities Expected Outcomes
&
beyond

Policy / Regulatory

Policy level decision to ensure

that no new openings in the
Enhanced protection of
Forests area would be permitted. X
forest cover.
Strict implementation of Forest
Conservation Act.

Resource mapping and

preparation of policies for Enhanced protection of
increasing Protected Areas as per X forest cover in line with
the international norms of international standards.
forests.

Policies for reclamation and Restoration of lands

restoration of the abandoned with abandoned and
X
and/or illegal mines and quarries illegal mines and
near forest. quarries near forests

Institutional

Establishing an inter-sector Better coordinated and

working group on slope X integrated action on
protection slope protection.

Preparation of framework Better coordinated and

documents for effective integrated landscape
implementation of landscape X
approach to Protected
level approach which will include Areas.
identifying the landscapes and

213
 0-6 0-18 18
months months months
Activities Expected Outcomes
&
beyond
defining specific inter sectoral co-
ordination in terms of roles and
resources.

Preparation of management
action plans for ecologically Improved management
X X
sensitive zones around Protected of Protected Areas.
Areas.

Targeted eradication of
Mapping of the areas for control
invasive species and
of invasive species by Forest
provision of livelihood
Department agencies through X
to forest dependent
VSS/ EDCs and preparing a
communities, especially
management action plan.
those affected by flood.

Investment

Stronger legal
Policies and Management Action
protection to and
Plans for effective management X X
improved management
of resilient, critical ecosystems
of critical ecosystems.

Restoration of 5000 ha
Programs for no further use of of forests over a period
forests land to meet the wood- X of five years, to its
based industries. original natural
vegetation.

Restoration of flood-
damaged forest
Restoration of damages to forest infrastructure to its
infrastructure as well as intended functional
X X use.
strengthening of forest
infrastructure. Strengthening of
existing forest road
network.

Habitat improvement of 20,000 Strengthened natural

X X X
ha over 5-year period. vegetation contributing

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 0-6 0-18 18
months months months
Activities Expected Outcomes
&
beyond

Integrated approaches to to enhanced resilience

conversion of plantations to of the forests.
natural forests and maintenance.

Voluntary relocation of critically

Reducing forest
located human habitations (37
X fragmentation and
enclosures, 640.32 ha and 1861
human-wildlife conflict.
families)

Acquisition of eco sensitive areas

Acquisition of estates - 13 - Reduced fragmentation

1450.16 ha. X and improved
Acquisition of mangroves. resilience.

Expansion of forestry in coastal

areas.

Strengthened
Establishment of bio-shields and capabilities of coastal
X
coastal shelter belts. areas against future
calamities

Conservation of ecologically
sensitive areas inclusive species
Strengthened coastal
conservation as listed in CRZ
ecology against future
2011 for Kerala – 22.82 Sq.Km.
calamities
(mangroves, turtle nesting sites,
active mudflats & protected area)

Improved conservation
Preparation and implementation
and protection of river,
of management action plans for
river banks and riparian
conservation of major rivers and X
ecosystem to act as an
protection of river banks for
instrument for flood
originating from forests.
control.

Better protected
riparian ecosystem and
Conservation of the riparian
myristica swamp as
ecosystem and myristica swamp
mechanism of flood
controls.

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 0-6 0-18 18
months months months
Activities Expected Outcomes
&
beyond

Preparation and implementation Improved wetland

of management action plans for protection and
X
wetlands inside forests involving enhanced community
local communities. livelihoods.

Enhanced livelihoods
Rebuilding of flood affected and improved disaster
X X
ecotourism areas. resilience of ecotourism
destinations.

Induction of all-terrain vehicles/ Strengthened disaster

equipment/ boats and training of X X response capabilities of
staff. Forest Department.

To ensure clean and

litter free forests and in
turn clean and litter
Forest Sanitation X X X
free water bodies and
water sources including
rivers and streams

Enhanced application of
Updating and strengthening GIS
ICTs in Forest
and ICT capacity within the X X
Department operations
Forest Department.
and management.

Strengthened technical
Establishment of Centre for Eco capacities of Forest
restoration. Department in eco-
restoration.

Strengthened capacity
Mapping, monitoring and
of first order streams
strengthening the seasonality of
X and rivers to address
first order rivers within forests
droughts and forest
through technology.
fires.

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4.7.5 Technical Studies and Assessments
This section includes the list of studies that will be required in advance or in parallel with the selected
interventions:
Pre-investment studies: The following pre-investment studies / proposals will be prepared:
 Study on the reasons of degradation of first order water streams within forests, and study on
possibilities of its restoration.
 Study on the impact of mining in the vicinity of forests in triggering the landslides and degradation of
forest areas.
 Study as to how the restoration of natural vegetation in denuded forests / degraded forests /
abandoned estates can be done, and how can it be sustainably managed.
 Study the possibilities of a better protection of the river banks and catchment area of wetlands with
natural vegetation and geo-textiling.
Project Proposals:
 Proposal for management of water bodies inside forests
 Proposal for coastal belt plantations
 Proposal for conserving special habitats in the coastal regulation zones
 Proposal for disaster resilience in places of visitation.
Feasibility / Scoping Studies: Policy briefs to be prepared prior to introducing each of the following policy
reforms:
 Feasibility of alternate management strategies of the resilient, critical eco-systems (mangroves,
sholas, grasslands and other eco-sensitive areas) by Forests Department.
 Study on the impact of policy as to not permit the use of forest land to meet the need of the wood-
based industries. Study to mitigate the impact of the policy on the restriction of new openings in the
forests area.
 Feasibility of increasing the protected areas.
 Study on finding alternate sites while limiting the development activities like mining in the 200-metre
vicinity of the forests.
 Scope of aligning the Social Forestry wing of the Forest Department to manage and conserve wetlands
outside forests as well as the coastal ecosystem.
 Feasibility and scope of the working of Centre for Eco-Restoration under the Social Forestry division
of the Forest Department to take up the work of restoration and reclamation of abandoned and illegal
quarries and mines by using CSR and other funds.
 Feasibility and Scope of Coordination Committees and inter-sectoral approach for landscape level
management and ecologically sensitive areas.
The above briefs will analyse the implications of the policy change, if any, and accordingly help take an
evidence-based policy decision and also modify the provisions to be included in the Government Order.
The briefs will also focus on the dissemination / awareness creation, orientation, enforcement and
monitoring that would be required in order to ensure effective implementation. Accordingly, adequate
resources – manpower and financial – would be allocated.
Institutional briefs to be prepared prior to introducing each of the following institutional reforms:

217
 Establishing an inter-sector working group on slope protection.
 Restructuring the field units of Forest Department (Ranges and Divisions) to Revenue Administration.
 Management of coasts, wetlands, Rivers and riparian ecosystem and other ecologically sensitive
areas.
The above briefs will analyse “how” the above reforms will be initiated, implemented and streamlined.
Adequate resources – human resources and financial – would be allocated to ensure effective institutional
change. Pre-investment studies / proposals will be prepared for the GIS Centre strengthening.

Table 39: Forestry List of Studies

0-6 0-18 18 months
Activities
months months & beyond

Policy / Regulations
Policy briefs (8 nos.) X
Institutional
Institutional briefs (3 nos.) X
Investments Planning
Proposals for the GIS centre X
Proposals for restoring damages to the forest infrastructure X
Proposal for protection of river banks and catchment area of
X
wetlands vegetation and geo-textiling with natural
Proposal for management of water bodies inside forests X
Proposal for coastal belt plantations X
Proposal for conserving special habitats in the coastal
X
regulation zones
Proposal for disaster resilience in places of visitation X
Proposals for investments are required for establishing and
X
maintaining resilient forests
Proposal for rehabilitation of tribal & acquisition of estates &
X
corridors

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4.8 Agriculture

4.8.1 Introduction
Around 52% of Kerala’s geographical area is under cultivation110. Kerala’s diverse geographical landscape,
comprising 5 major agro-ecological zones, is home to a wide variety of crops, including cereals, pulses,
fruits, vegetables, tubers, spices, oilseeds, plantation crops and medicinal plants. The low-lands of Kerala
are known for sprawling paddy fields featuring cultivation of over 600 varieties of paddy. The hill districts
are suited for spices and plantation crops. Kerala is known as the spice capital of India; the State leads the
country in the production of several commodities; the State accounts for 89% of small cardamom
production and 98% of nutmeg production in the country. The State also accounts for 34% of national
pepper production111. Kerala also produces about 70% of the natural rubber in the country112, and is a
major producer of other commodities such as cashew, ginger, tapioca and jackfruit. Export of agricultural
products is the top contributor to Kerala’s total exports. Total exports of agricultural products in 2017-18
was 0.236 million MT valued at Rs. 1,869 crore113. Agriculture along with livestock and fisheries
contributes to 11% of the Gross State Value Addition (GVSA) at current prices (crops: 5.42%). 17.15% of
the population depends on the sector.

4.8.2 Impact of 2018 floods and response

The floods caused widespread damage to the Kerala’s agriculture sector. Districts such as Idukki that are
characterized by hilly terrain of the Western Ghats saw large tracts of agricultural land and plantation
crops wiped out due to torrential rainfall and massive flow of water. The mid-lands and low-lands
(Kuttanad and Kole regions) on the other hand were characterized by massive flooding and inundation of
fields, resulting in rotting of crops and wilting of trees, causing significant losses to farmers. Preliminary
observations indicate changes in soil acidity levels in several regions. Over 1.08 million farmer households
have been affected by the floods. The total cultivated area affected by floods is an estimated 236,650 ha
which is 11% of the State’s area under cultivation.
At least 51,194 hectares of agricultural land have been damaged due to silt deposition or soil erosion/soil
being washed away due to landslides. This has affected an estimated 315,000 farmers. As per state
government norms, Rs. 12,200 per hectare is provided to farmers for desilting/removal of debris, while
Rs. 37,500 per hectare is provided to farmers who have lost substantial portion of top soil due to
landslides. The actual cost of restoration is estimated to be substantially higher as per discussions with
farmers and district level agriculture department officials. Some of the farm lands damaged by landslides
may no longer be cultivable, while others may be reclaimed after significant investment over multiple
years.
Total cropped area affected by floods is estimated at 236,650 hectares. The most affected crops are
Pepper (98,000 ha), Cardamom (35,750 ha), Paddy (35,820 ha), Banana (21,620 ha), Tapioca (12,100 ha)
and vegetables (10,850 ha). Total crop losses are estimated at Rs. 18,545 crore, with the maximum losses
in Pepper, Cardamom and Banana crops. Idukki is the most affected district in terms of crop losses, with

110
Agriculture Statistics, 2016-17, Department of Economics & Statistics
111
Spice Board of India, 2017-18
112
Rubber Board
113
Agriculture and Processed Food Products Export Development Authority (APEDA), 2017-18

219
an estimated 132,767 hectares of crops suffering damages due to landslides / floods.
The floods also resulted in damages (estimated at Rs. 179.8 crore) to agricultural input stocks, farm
equipment and machinery, and damages to community assets and public infrastructure. In addition to
these estimates, large-scale damages to farm bunds and pumping units were observed, particularly in the
Kuttanad wetlands.
The State Government responded with a sense of urgency and proactivity and have provided
compensation for losses to 238276 farmers as on 28 February 2019. An amount of Rs. 94.54 crore has
been disbursed against Rs.247.72 crore sanctioned till 28 February 2019.
A special programme for handholding and creating awareness among flood affected farmers, by name
'Punarjani' was conducted in all the 14 districts. With the help of Department officials, people’s
representatives, Scientists from Kerala Agricultural University, NGOs and members of Agro service centers
and Karshika Karma Sena. Classes and seminars were conducted on the immediate farm operations to be
carried out in the aftermath of flood to make land cultivable again. Sol testing campaigns were organized.
Also, removal of silt deposited by flood in farmers’ fields, application of soil ameliorants, plant protection
measures including rodent control, repair of farm machinery etc. were demonstrated. It has helped to
boost the morale and regain the confidence of the farmers of the farmer. Several policy initiatives were
also taken to make relief readily available to farmers.
The Department of Soil Survey and Soil Conservation has completed and published a study in December
2018 titled “Soil Health Status in Kerala in Post Flood Scenario”. The extend and type of damages have
been documented in the study report.
Damage and Loss – As per the Kerala Floods 2018 Post-Disaster Needs Assessment (PDNA), the total
damage and loss, and recovery needs for this sector estimated to be as follow –

Damage Loss Total Effect Total Recovery Needs

(Rs. crore) (Rs. crore) (Rs. crore) (Rs. crore)

2,723 3,558 6,281 4,194

*In PDNA, this data is under ‘crops’ subsector of larger Agriculture, Fisheries and Livestock chapter.

Immediate Recovery Efforts – As of February 2019, a total of 3,05,964 applications were received for
compensation for crops change, out of which 2,38,376 persons have been given compensation amounting
to Rs. 67.7 crore utilising SDRF. The department of agriculture has distributed Rs. 110.45 crore to 2,24,610
persons from the budgetary resources of the State. An amount of Rs. 21.58 crore has been given as
compensation to 13,775 farmers under the restructured State Crop Insurance Scheme. An amount of Rs.
197.78 lakhs has been allotted for dewatering, bond/block renovation and repair to water pumping
service. Rs. 525 lakhs were disbursed from SDRF as assistance for removal of debris/desilting, loss of
agriculture land due to landslide. The State Horticulture Mission has submitted proposal to the Central
Government for additional assistance of Rs. 102 crore through the Mission for Integrated Development
of Horticulture Scheme (MIDH), of which Rs. 93.93 crore has been received. Under reprioritisation
schemes, assistance was provided for free distribution of paddy and vegetable seeds, rodent control
campaigns etc. for an amount of Rs. 22.19 crore. Also, special flood mitigation package for Rs. 43.62 crore
was sanctioned. Financial assistance for distribution of soil ameliorants, assistance for planting materials

220
of perennial spices like nutmeg and clove, assistance for mechanisations, both purchase of pump-sets for
individual farmers and repair of petty and para and other machinery by farmer groups, free supply of
paddy and vegetable seeds and seedlings etc are included under the package and are being implemented.
About 5,651 metric tonnes of paddy seed were distributed to farmers free of cost along with one crore
vegetable seedlings, 50 lakh vegetable seed packets, and 12 lakh pepper seedlings. A total of Rs. 92 crore
has been given to vegetable farmers as compensation. In 270 places in Alappuzha and Kottayam districts,
bund related works were carried out by Padashekara Samithis. Moratorium for agriculture loans in flood
affected areas has been declared for one year from August 2018.
As suggested by the PDNA, recovery activities could include - developing sustainable, responsible,
integrated, inclusive, eco-friendly, and resilient agriculture in line with the policies of Government of
Kerala and Government of India. Implementation of an inclusive recovery strategy will promote the
participation and well-being of women and other vulnerable groups in agriculture, fisheries, livestock, and
allied activities. The aim of reconstruction efforts in the agriculture could be to increase economic activity
and sector resilience to disaster events, in accordance with the principles of ‘Build Back Better (BBB)’.
Short term recovery could focus on provision of inputs and restocking, replacement or repair of assets
and infrastructure, and finding alternative income sources for the population. Medium- and long-term
activities could focus on building resilience of each subsector through environmentally sustainable
integrated farming systems, community-based management of water resources, promotion of traditional
indigenous livestock breeds (resilient to local conditions), improvements in value chain, setting up of early
warning systems, and effective communication with enhanced GIS/technology backed capabilities.
Essentially, Agriculture Development could aim for effective and timely implementation of all
developmental programs of local bodies, State and Central Government using modern scientific
techniques and information technology. The farmers shall be made aware of modern farming techniques
and technologies to cope with the vagaries of nature which is essential for the survival of the farming
community. The extension activities of the department could be restructured into AEMUs having similar
soil, climate and crop patterns; and the present Agriculture Technology Management Agency (ATMA)
restructured to address the extension needs of the AEMUs. This RKDP further develops upon the
suggested sector recovery activities proposed in the PDNA through analysis of the root causes and through
consultations with public and relevant stakeholders.

4.8.3 Major Legacy and Current Issues

Cropping pattern in Kerala is dominated by cash crops. Cash crops nearly constitutes 62.46 % of the total
cropped area while food crops consisting of rice, tapioca and pulses constitute about 9.35 %. Coconut has
the largest area under crop cover (30 %) followed by rubber (21.3 %) pepper (3.3 %) and coffee (3.28 %).
Rice has the third largest area under crop cover (6.6 %)114. Four major crops, viz., paddy, coconut, rubber
and arecanut, together accounts for over 60 % of the total cropped area in Kerala, mainly because of the
increase in area under rubber, followed by coconut in the past decade.
Having said so, there has been a consistent decline in the total cropped area in the State from 30 lakh
hectare in 2000 to 25.79 lakh hectares in 2017-18115. While the net sown area recorded a decline of 9.2%
(i.e. 2206 ha in 2000 to 2040 ha in 2018)116. The State has been witnessing a year-on-year decline of gross
cropped area by about 2%. As compared to 2016-17, there is a decline in area under barren and
uncultivated land, cultivable waste, fallow other than current fallow lands and current fallow by 8%, 5%

114
Reengineering Irrigation Systems in Kerala, Amrita Vishwa Vidyapeetham, December 2016
115
Economic Review 2018, State planning Board, Kerala
116
Ibid.

221
11% and 20%, respectively. This non-use of cultivable land is an indicator signalling the tendency of people
to keep land fallow for various reasons. Some of the factors contributing to this increase are - decline in
area sown more than once, diversion of economic activity from agricultural operations to non- agricultural
operations due to high input prices and labour cost, shift in cropping pattern skewed towards cash crops,
availability of water, etc.

Crop-specific challenges
Rice – Rice production took a major hit in the drought of 2016-17, which has influenced the reduction in
the food cropping area. However, the various liberal measures both physical and financial support
provided by the government to the farmers enabled production to increase by about 19.4% in 2017-18
(i.e. 436k tons in 2015-17 to 521k tons in 2017-18)117. Palakkad, Alappuzha, Thrissur and Kottayam
accounted for 79.6% of the total area of rice in the State. Palakkad and Alappuzha saw an increase in
productivity, while traditional rice production belts of Thrissur, Malappuram, Wayanad, Kozhikode,
Pathanamthitta saw a decline. The district of Alappuzha recorded a decline in productivity which could
also be attributed to rain water (2018 floods) retention in the irrigation channels due to the entire district
being below the mean sea level.
Coconut – There has been an increase in the output of coconut in the recent past, is more on account of
the increase in acreage of cultivation, rather than productivity of the crop. In 2017-18 there was a marginal
decline in the production from 781k tons nuts in 2016-17 to 760K tons nuts118. The key reason for the
decrease in the productivity is due to root wilt disease119, poor management existence of senile and
unproductive palms, high labour costs shortage of skilled labour, non- remunerative prices and lack of
promotional programs to improve the markets. This led to both farm owners and GoK promoting
replantation of root wilt palms by elite palms and elimination of senile palms, setting up of nurseries for
production of quality seedlings and their subsequent distribution for increasing productivity. The
Department of Agriculture (DoA) restructured coconut development programs through convergence
approach at the Panchayat level in 2014-15 and backed it up with price advantage to revive coconut
production in the State. Initiatives taken by DoA in promoting neera and other value addition to coconut
and its products in 2017 and 2018 to boost the market thereof is now slowly reviving the coconut economy
in the State. A slew of incentives and concessions has been announced in the budget of 2019-20 by GoK
to address the aforesaid problems and improve productivity and marketing of Coconuts and its by-
products.
Rubber has shown more than a three-fold increase in area of cultivation in the period starting 2011 and
boosted production in the years 2015 to 2017. However, in terms of the sale prices, it has been heading
south from a high in the earlier part of the decade. Current trends indicate that prices continue to falter
albeit at a slow rate. The overall market trend continues to stay weak and subdued and has been
accentuated by the 2018 floods and weak macro-economic climate. The declining price of rubber is a
cause of concern as, survival of the sector and the related livelihoods of the people working in the rubber
plantations will be affected adversely. Some efforts to improve the marketing of rubber has been
announced in the 2019-20 budget.

117
Ibid.
118
Economic Review 2018, State planning Board, Kerala
119
Phytoplasma is one of the most devasting diseases of coconut palms. The major symptoms of the disease in
leaves are wilting, drooping and flaccidity; ribbing, paling/yellowing and necrosis of leaves are typical symptoms of
this foliar disease

222
Banana - Banana is cultivated 62,106 ha. and other plantains in 54,455 ha. in 2017-18 with a production
of 4.89 lakh tonnes and 3.95 lakh tonnes respectively. These together account for 4.52 % of the total
cropped area in the State. Banana production had increased slightly by 15.64 % in 2017-18 compared to
the previous year. The major issues in banana cultivation are wide fluctuation in prices, incidence of pests
and diseases like pseudo-stem weevil, bunchy top, etc. Rhizome rot and Fusarium wilt were widely
[prevalent during the post flood period. The productivity is very low in Kerala, viz., only 8565 kg/ha (9111
kg/ha in 2017-18) compared to the national average of 34 MT/ha in 2016-17.120
Pepper - The cultivation of pepper is seeing downward trend in India specially in Kerala, Karnataka and
Tamil Nadu, where its grown on the slopes of the Western Ghats. This downward trend in the last decade
has adversely affected revenues and exports of the same. In 2016-17, the estimated pepper production
recorded an increase to 55,500 tons from 48,500 tons121. However, Kerala which accounts for 75 % of the
total production in the country recorded a drastic decline from 46 thousand tons in 2012-13 to 38
thousand tons in 2017-18.
One of the key reasons affecting the pepper production has been to the spread of a disease in the pepper
gardens and decline in prices due to imports of pepper in the country122. DoA has initiated a
comprehensive pepper development programme for revival of the crop, with extensive support towards
reorientation of planting material production, expansion of grafting wherever possible, area wide disease
management, liming, nutrient management and revival of Pepper samitis, which fairly brought production
almost close to its old levels. On pepper prices - it is bullish despite a 0.03% drop in 2015.
Cashew – India is one of the largest producers of raw cashew. Kerala has lost its leading position now to
Maharashtra and Andhra Pradesh which has cashew cultivation area of nearly 32.9% and 18.3% in the
country. Kerala has seen a steady decline in the cultivated area now almost down to about 39.7k ha from
high of 53k ha a decade ago, bringing down the production to about 25.6MT in 2016123. The productivity
to 645 kgs /ha from a high of 799 kg/ha a decade ago. Part of the reasons could be attributed to climate
change and the August 2018 floods worsened the outputs further. Hence, focused production incentives
may be required to get the raw cashew production to old levels.
Coffee - Coffee production in Kerala registered a slight increase in 2017-18 by about four thousand tons
compared 2016-17. Major variety grown in Kerala is Robusta with a share of 97.1 % in planted area and
about 69.9% of coffee production. Productivity of the crop in terms of bearing area in Kerala is 782 kg/ha
as compared to national level of 765 kg/ha. Kerala stands next to Karnataka which accounts for 70.4 % of
total Indian coffee production. FAO estimates, yield and lower productivity is due to limited
mechanization, pest infestation, existence of old/senile plants and labour shortage. Thus, on the
productivity side much more needs to be done and towards this concerted effort are required both at the
policy and farm level for achieving higher yields. In the annual budget for 2019-20 a special package of
concessions for coffee growers in Wayanad have been announced by the Kerala’s Finance Minister which
included increase in the procurement price, special facilities for processing raw coffee beans, schemes for
decreasing the carbon foot print in the production area and branding the coffee as “Malabar Coffee” to
boost for international and domestic marketing.

120
Horticulture – Statistics Year Book India 2018 of the Ministry of Statistics and Programme Implementation, GoI
121
Economic Survey 2018, State Planning Board, Kerala
122
UPASI annual Report 2017-18
123
Economic Survey, State Planning Board, Govt of Kerala

223
Tea – Kerala accounts for 5.03 % of the area and 4.69 % of the total domestic production of tea in the
country. In 2017-18, tea production increased by about 1.2% compared 2016-17 i.e. 3607 tons124 despite
area remaining the same on account of increase in productivity. The major issues plaguing the tea industry
are stagnant productivity (i.e. 10% since 2000-01), acute labour shortage, high cost of machines, lack of
indigenous machinery and other land and labour costs issues.
Cardamom – Cardamom production at all-India level increased and so did the prices. However, Kerala
registered a marginal decline due to the drought in 2017 and with the August 2018 floods, the destruction
to the crops have been manifold. Despite the 2018 floods, there has been an increase of 7% in production
in comparison to 2016-17125. It is expected that there will be a substantial increase in production in 2019-
20, if the monsoons are normal, helping Kerala retain its position as one of the top producers at the
national level. Incentives and efforts need to be undertaken both by GoK and private sector to provide
technical support, reestablishment of a robust collection and aggregation, for onward/ forward sales to
export markets.
Collective farming through Kudumbashree - Collective farming is an important area of Kudumbashree,
which aims at food security both at household and community level. The major crops cultivated are paddy,
vegetables, banana, pineapple and tubers. The area brought under cultivation of paddy is about 11,337.9
ha, vegetables – 17,621.2 ha, banana 5,869.77 ha126 and 17,661 ha of other crops like, pineapple and
tubers through 78,746 Joint Liability Groups (JLGs). DoA should engage JLGs of Kudumbashree to
cultivate the fallow lands and other cultivatable lands which are now becoming fallow, to contribute to
increase in Kerala’s agricultural productivity. More hand holding support including facilitation with banks
and technology support are essential for improving livelihood of the women groups involved in farming.
Given the above agricultural development scenario, indicating a movement away from food crops to a
substantial expansion in area under commercial/plantation crops, appropriate state level interventions
through application of satellite- artificial intelligence linked ICT systems to provide end-to-end solutions
for farmers is as critical as interventions and investments being undertaken towards infrastructure
development for the utilization of water resources, especially construction of surface irrigation systems.

Overarching challenges
Overburdened grassroots institutions: Appropriate utilization of human resources has been affecting the
sector over a period of time, specially Krishi bhavans - the institution at the panchayat level. They are
currently overburdened with more administrative activities due to execution of multiple agri-sector
schemes, as against providing farm services to the cultivators. A Krishi bhavan is typically housed in the
panchayat office and has a staff of three to four persons comprising an Agriculture Officer and two or
three assistants. Krishi bhavans perform numerous functions including planning and implementation of
state level schemes, central schemes and LSGI schemes, training of farmers and agripreneurs, campaign
and exposure visits, conducting plant health clinics and several others. A Krishi bhavan Working Group
meeting127 listed 65 functions that are currently being undertaken by Krisi bhavans. This is a significantly
higher workload as compared to the year when Krisi bhavans were first instituted (1987). The staff
strength, however, has not been augmented over the years, which needs to be reviewed and addressed.
Similarly, grassroots institutions in the Animal Husbandry sector also needs to be strengthened with
additional technical staff. Additional institutional representation may be required at the village, block and

124
Economic and Statistics Department, Govt of Kerala
125
Economic Survey 2018, State Planning Board, Kerala
126
Ibid.
127
Organized by Department of Agriculture with support from the World Bank team in January, 2019

224
district level to strengthen service delivery and make the shift to proactive veterinary services at the
doorstep of livestock farmers.
Plethora of institutions; Institutional framework is scheme-focused as against farmer-focused: There
are numerous institutions operational in the Agriculture and Allied sectors. These include Department of
Agriculture; Department of Animal Husbandry, Department of Dairy Development, Department of
Fisheries, Rubber Board, Spice Board, Vegetable and Fruit Promotion Council, Directorate of Arecanut and
Spices Development, Directorate of Cashewnut and Cocoa Development, Kerala Land Development
Corporation Ltd, Kerala Fed, Kerala State Warehousing Corporation, Department of Irrigation and many
more. The institutional machinery is geared towards implementation of schemes and distribution of
subsidies, with a focus on outputs as against inputs and outcomes. As a result, many of these institutions
work in isolation with limited or nil coordination with allied departments towards maximizing benefits to
farmers.
Wetland Development Agencies lack teeth and suffer from coordination issues: The State government
released a package for the development of Kuttanad under a dedicated development agency (Kuttanad
and Alappuzha Prosperity Council - KAPCO)128. However, implementation has been slow, as development
agencies lack teeth and have been marred by poor monitoring and oversight, as well as coordination
issues with line departments. KAPCO is currently as good as defunct. The Chief Secretary of the State
chairs the implementation committee which has never held meetings due to pre- occupation of the Chief
Secretary and other board members. Project implementation by Kole Development Agency (KDA), which
was set up to oversee development of Kole wetlands, is headed by DC, Thrissur. Again, KDA suffers from
coordination issues with line departments, resulting in slow decision-making and delayed
implementation, with declining allocation of funds as years pass by.
Limited use of technology has hampered development efforts: There is a need to introduce modern
technology across the spectrum in the agriculture sector. The department of Agriculture uses little or no
ICT based tools to manage the sector. This has led to reduced efficiencies and disproportionate allocation
of time on peripheral tasks. For instance, Department of Agriculture Working Group meetings revealed
that officials spend a large proportion of time responding to requests for information / reports from
higher-ups and various agencies, as well as audit queries. This suggests a need for an MIS that can track
physical and financial progress and generate real-time reports. The administration is also hobbled by lack
of real-time data on cropping patterns, crop yields, livestock movements, livestock health and several
other areas which hampers planning, investment and service delivery. ICT and GIS based monitoring
systems are required to ensure schemes are targeted and implemented well and in a timely fashion.
Agricultural water and moisture management: Notwithstanding significant public and private investment
in irrigation, many irrigation systems are underperforming and do not adequately serve the end users.
Most of the larger (major and medium) irrigation systems have been designed for paddy, and so are not
fully in sync with the changing demands of an agricultural sector that is increasingly dominated by
commercial crops such as cashew, coconut and rubber. While water is a constraint in certain parts of
Kerala, an equally pressing problem in other, lowland areas is too much water, making low value paddy
cultivation the only option for farmers. Over time, the agricultural sector has become increasingly reliant
on groundwater in many parts of the State, which has now surpassed surface / canal water as the primary
source and is increasingly under stress. With limited water holding capacity, there are dangers of over-
reliance on groundwater resources, as was shown shortly following the floods. Saltwater intrusion in
coastal areas is also increasingly prevalent.

128
This was based on a study conducted by MS Swaminathan Foundation

225
An analysis based on crop-wise irrigated area and source wise net irrigated area reveals that official
statistics on crop-wise gross irrigated area, and source-wise net irrigated area, help in drawing any
meaningful and realistic conclusions about the impact of irrigation in the State129. The core two reasons
for the poor performance of irrigation systems in Kerala appears to be:
a) Most of the irrigation systems are designed for irrigating paddy lands. The decline in paddy cultivation
is a manifestation of the ineffective performance of the irrigation systems constructed till date in the
traditional cultivation belts. Although, rice had received focal emphasis in the design of irrigation
projects in Kerala, it has not yielded the desire results in terms of production and multi-cropping of
the cultivated areas; and
b) The shift in cropping pattern in the State from rice (paddy)-dominated food crops to coconut- and
rubber-dominated commercial/cash crops over the past five to six decades (Viswanathan PK 2010,
2014).
There is a glaring mismatch between agriculture sector requirements vis-à-vis capital investments for
development of large-scale canal irrigation systems and absence of corresponding area expansion under
canal irrigation.
Apart from the management of irrigation and water availability, increased focus is required for moisture
management which include promotion of practices, development of efficient moisture conservation
technologies, relevant infrastructure and acquirement of relevant knowledge and skills.
Shifting Cropping Pattern: The shift in cropping pattern is having a significant impact on the performance
of the irrigation sector in the State. In addition, to delayed implementation and poor performance of
irrigation investments, other reasons attributing to the shifts are:
a) lack of profitability,
b) non-availability of labour and high wage rates;
c) non-availability and scarcity of water;
d) waterlogging in the paddy fields;
e) lack of interest among the younger generations;
f) declining operational size of paddy fields;
g) encroachment into irrigation canals and its sub-canals; and
h) the growing density of population and process of urbanization are highly responsible for conversion
of farm land into residential and commercial establishments, with related infrastructure such as roads
and other utilities.
It is critical that GoK revisits and notify master plans developed for each local body and strengthen the
compliance audit machinery to halt further deterioration of the sector.
Modified soil environment: The large-scale flooding, silt deposition and topsoil erosion due to landslides
has resulted in substantial changes to the soil's physical and chemical composition, with long term
consequences for soil health and fertility. The aftermath of flood brought about severe damages such as
surface crusting, surface cracking, loss of soil flora and fauna such as microbes, useful fungi, earthworms,
etc in addition to the loss of nutrients due to leaching, loss of surface soil in many areas etc. The
devastating impact of flooding on soils include deterioration in soil quality necessitating the need for its

129
Reengineering Irrigation Systems in Kerala, Amrita Vishwa Vidyapeetham, December 2016

226
study. Soils are the key to food security, biodiversity, mitigating and adapting to climate change. Floods
often wash away rich, weathered soil. The situation demands the launching of special package of
interventions for recovery.
Poorly planned cropping in landslide prone hill regions: Cropping in hilly regions such as Idukki and
Wayanad districts, where the top soil is prone to erosion, is intensive, unplanned and does not address
risks posed by possible landslides. Use of intercropping techniques to combine shallow-root crops with
deep-root crops is not widespread leaving plantation crops vulnerable to damages through topsoil
erosion.
Low crop productivity: Despite good agro-climatic conditions, the average productivity of the majority of
the crops is well below potential. Paddy cultivation in the floodplains is barely viable for marginal farmers,
despite a range of subsidies offered by the government in terms of fuel and equipment such as pumps.
The percentage of marginal farmers with landholding less than one hectare is highest in Kerala among
Indian states. This indicates the need for additional sources of income for marginal farmers through allied
activities.
Low awareness of crop insurance schemes: In addition to national schemes such as the Pradhan Mantri
Fasal Bima Yojana (PMFBY) and the Weather Based Crop Insurance Scheme (WBCIS), Kerala has its own
crop insurance scheme. However, uptake remains less than 10% across the State, affecting resilience of
farmers.
Financing: Among Indian states, Kerala was the first state to have introduced a comprehensive Agriculture
Workers’ Pension Scheme which came into effect in 1980 benefiting a major segment of the State’s
workforce in the unorganized sector (other pension schemes depending on the occupational category
came to be modified around it). In terms of wages, working conditions and provisions for retired life, these
workers were the most disadvantaged and hence most deserving of a pension however small which
entitled them to half the food grain requirement of an adult and enhanced their acceptability within the
family and society.

4.8.4 Proposed Approach to resilient rebuilding

The multi-pronged approach is proposed for interventions in the Agriculture sector, within the eight
broader principles of the overall engagement. The approach and the interventions that follow are based
on detailed Working Group deliberations organized by the Department of Agriculture and is fully owned
by the Department. The approach includes the following:

A. Agroecological approach for sustainable and resilient development:

An agroecological approach is recommended for Kerala’s agriculture and allied sectors to ensure
sustainable development of zones with unique agroecological conditions (e.g. Kuttanad, Kole, Hill
systems) and increase household incomes, improve resilience and preserve biodiversity. Under a project
coordinated by Kerala State Planning Board in 2015, agroecological delineation of Kerala was
undertaken130. Based on climate, geomorphology, land use and soil variability, Kerala has been delineated
into five major agroecological zones, and 23 Agroecological Units (AEUs), which were then regrouped into
20 Agroecological Management Units (AEMUs) after consideration of administrative boundaries.

130
Agro Ecological Management Units of Kerala – Towards a new development approach in Agriculture, Kerala State
Planning Board (P. Rajasekharan, K.M. Nair, V. K. Venugopal, P. Kochunarayanapillai), 2015

227
Agroecological planning can usher in faster development of agriculture in Kerala through efficient land
use planning, mapping suitable crop varieties to AEMUs, optimal resource allocation, tailoring schemes /
interventions and technologies to AEMUs, better risk analysis of climate hazards and identification of
suitable mitigation measures, etc.131 AEMU level planning emphasizes local planning and development
based on agroecological boundaries as against top-down planning and implementation based on
administrative boundaries. GoK should aim to align Kerala’s policy and institutional framework in
agriculture sector to agroecological approach for sustained and resilient growth of the sector.
Alongside the Agroecological planning, there are geographically contiguous areas falling under different
agro-ecological zones, however they form the natural drainage system. Examples are the Idukki-
Kottayam-Alappuzha area and the Wayanad-Kozhikode area. A comprehensive approach to develop the
drainage is required on an urgent basis to both flood proof and drought proof these districts. Specific
attention shall be paid to Crop Contingency planning in all the zones with adequate response and
implementation capability.

B. Restoration of Damaged Soil:

Soil has borne the brunt of the flood ravage and requires immediate and significant attention. A time-
bound action plan to restore/rectify the damages like top soil losses, hard crust formation, changes in
water holding capacity, chemical changes, loss of soil microbes, flora and fauna etc. is urgently required.
This will require a census-scale assessment of the damages and preparation of time-bound implementable
action plan.

C. Re-engineering institutional framework for effective last mile delivery:

As mentioned earlier, a wide range of institutions are operational in the Agriculture sector. The
institutional framework faces several challenges including coordination issues between different
agencies, overburdened grassroots institutions, capacity gaps at different levels, multiple lines of
reporting, focus on delivery of subsidies / schemes and outdated monitoring mechanisms. The project will
support a comprehensive assessment of the institutions and re- engineer them for more effective delivery
through restructuring, redefining of roles and responsibilities, strengthening staffing, capacity building
and improving alignment with AEMU-centered strategy for sector’s growth. GoK should also explore
reviving and or consolidation of the existing institutions as required based on the detailed study of the
irrigation impact on agriculture production – as recommended in the following point. The re-engineering
may include deployment of early warning systems and effective communication with enhanced GIS/tech
backed capabilities at the Krishi Bhavans. The agriculture department personnel have the capacity to be
early respondents and it is important to strengthen their early warning capacity (GIS system, tools to
monitor, detect, forecast risks and when necessary, issue alerts on impending hazards). Effective and
immediate communication to the community in locally understood language has to be ensured. The
institutional framework for effective last mile service delivery may take into consideration the close inter-

131
The Kuttanad wetland ecosystem, for example, is a distinct agroecological zone, characterized by a network of
canals and widespread backwater paddy cultivation. For improved resilience and disaster preparedness, this
agroecological zone requires specific investments that include environment-friendly bunding (using bio-bunding,
border planting, geotextiles, coconut planting etc.); investments in more effective pumping units; deepening of
drainage channels; capacity building of farming households in allied activities such as animal husbandry and fisheries
through cage culture.

228
relationships and prospects for integrated farming practices. It is advisable to see the Agri and allied
sectors as one and model the re-engineering effort.

D. Agriculture Water and Moisture Management:

There is considerable scope to improve agricultural water and moisture management for climate smart
agriculture, but specific needs have not been rigorously assessed. A number of issues need further study:
a) A detailed assessment of source-wise net irrigated area based on an extensive inventory of water
resources structures in the State, needs to be carried out to work out, and recommend the
interventions required to correct this anomaly;
b) Substantial, focused technically feasible and viable investments for rehabilitating the canals and its
sub-canal systems, and watersheds of various river basins are required to encourage supplementary
farm level investments by farmers, to increase productivity and employment.132 The Kuttanad wetland
ecosystem, for example, is a distinct agro-ecological zone, characterized by a network of canals and
widespread backwater paddy cultivation. For improved resilience and disaster preparedness, this
agro-ecological zone requires specific investments that include environment-friendly bunding (using
bio-bunding, border planting, geotextiles, coconut planting etc.); investments in more effective
pumping units; deepening of drainage channels; capacity building of farming households in allied
activities such as animal husbandry and fisheries through cage culture.
c) Viable alternatives to paddy cultivation and/or the possibility of de-watering in areas where water is
in excess
d) Specific needs in related to soil conservation and micro-irrigation in hilly areas, the performance of
larger irrigation systems given today’s conditions, and
e) Develop, popularize and mainstream moisture preservation techniques and technologies
f) Overcoming other constraints to agriculture such as high costs of labour, limited land, and scarce
material in certain parts of the State.
Based on these assessments, technically feasible and viable investments for improving agricultural water
management should be identified. Irrigation schemes that are only partly constructed due to delays
and/or cost over-runs should be subjected to the same needs-based critical assessment. The recent
initiative taken by Departments of Agriculture and Water Resources (Irrigation) to improve synergies
through joint meetings should be encouraged and a formal coordination mechanism should be
institutionalized.

E. Leveraging technology for enhanced monitoring and targeting:

Establishment of agro foods processing centres to attract private and public investments in establishment
of nurseries for production and distribution of quality seeds and planting material, integrated pack houses,
sorting and grading units, cold storage units, strengthen rural markets and wholesale markets allowing
farmers to sell their produce, dissemination of market intelligence to farmers for planning cropping and
sale of produce, extension quality awareness and farming guidance through ICT systems, and provide
technical support to market led extension activities for fresh and processed Kerala needs to shift to data-
driven agriculture development (“Agriculture 4.0”) to strengthen service delivery, improve crop yields,

132

229
and increase farmer incomes. The project will support development of ICT-based monitoring tools and
Decision Support Systems that leverage modern technologies such as GIS, RFID etc. to complement
institutional changes effected under the project. These are expected to speed up service delivery, reduce
time spent in non-core activities (report generation, audit related activities etc.), improve coordination,
improve targeting of schemes, open up opportunities for proactive service delivery. Importantly, these
tools will significantly improve administration’s response during and post disaster events.

F. Building knowledge base for effective planning and investments:

GoK should urgently invest in generation of knowledge, strategy and investment roadmaps that can
strengthen planning and drive sustainable and resilient growth of the sector. With the available ICT
expertise in the country, private sector software development firms may be engaged for the purpose, as
has been done in the states of Gujarat and Madhya Pradesh provide end-to-end solutions to farmers
directly.

Transformative Impact expected through ICT-powered Agroecological approach (~3 years)

 Increase in crop productivity (Seasonal crops by 50%, perennial crops by 25%)

 Change in institutional mindset from Scheme-focused to Farmer-focused
 Tripling of reach of services at the grassroots
 Improved risk bearing capacity through identification of local crops / solutions
 Improved adoption of technologies suited to local needs
 90% ICT coverage of farmer households,
 Doubling of speed of service delivery
 50% increase in productivity of officers, improved morale

G. Enabling business environment to improve agri-business in Kerala

To unlock the potential of agribusiness in Kerala, the State needs to create a conducive environment for
market-oriented production. To improve delivery of extension services and outreach, the State needs to
promote an ICT enabled agri-extension service, as expressed strongly through the working group
discussions. However, unorganized producers, fragmented supply chains, lack of sufficient market
orientation, lack of advisory and infrastructure support undermine the efforts for linking producers with
profitable markets, including branding.
Further, there is a need to enhance penetration of institutional credit to producers in the State to enable
adoption of modern technology and inputs. Facilitate local producers to tap attractive economic
opportunities in agri-value chains to enhance their market share through establishment of improved
market intelligence information systems and market drive supply-and extension services. A strategy paper
should be developed to address some of the following key areas to strengthen agribusiness development
opportunities in Kerala to transform the sector:
a) Favourable environment for agribusiness: Develop favourable policy environment to attract private
sector companies and other business entities (such as external investors, multinationals, start-ups)
provide adequate investments in services and resources to strengthening the agribusiness ecosystem
in the State.

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 b) Adequate Capacity development of farmers: Capacity development of farmers (including women)
and exposure to use of improved seed variety, application of technical information to improve
productivity of the soil and crops, quality standards, value addition processes, and logistics systems
of trade and use of market intelligence, and diversification into profitable markets including export,
to expand economic potential of agriculture sector in the State.
c) Access to institutional finance for value chain actors: Increase exposure of both large and small
farmers to formal financial institutions to enhance access to formal credits, and enterprises to address
the product and quality needs of these segments to loop into the supply system of large value chains.

4.8.5 Specific Interventions

In line with the proposed approach, the following time-bound interventions/activities have been
identified based on preliminary discussions with relevant line departments

Table 40: Agriculture Actions and Results Framework

0-6 0-18 18 months

Activities Expected Outcomes
months months & beyond

Policy /Regulatory

1. Strengthen policy - The Agriculture Sector development shall

framework for be focused on Agro-ecology based
development of Kerala's planning and monitoring. Zone specific
Agriculture sector based packages and practices will be developed.
on Agroecological Research shall be reorganized to suit the
Management Units needs of the revised system. The
(AEMUs) extension system will be re-engineered to
meet the challenges of the Zone based
2. Develop a policy
approach.
framework to consider
the various upland to - Department of Agriculture restructured
lowland geographical into agro-ecological zones
X X
continuums in the State
- Integration of activities with Department
with focus on drainage
of Irrigation;
development and
moisture preservation, - Consolidation of agencies and human
water table improvement resources redeployed to improve
etc. efficiency and efficacy of field operations
and support to farming community.
3. Strengthen policy
framework to promote - Technical cells established at district level
disaster resilient crop to manage legal cases related to
varieties in specific agro- enforcement of Kerala Paddy and Wetland
ecological zones

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 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond

Act and other related Acts, leading to

reduced burden on Krishi bhavans133
- Masterplans for integrated development
& management of Kuttanad and Kole
regions completed and under
implementation.

- Strengthen policy - Restructuring of existing institutions and

framework for promoting or establishment of Kuttanad
sustainable, ecology- Transformation Council and Kole
friendly and integrated Transformation Council for focused
development of development in addition to redeployment
agriculture and allied of the existing skeletal staff to the new
sectors in Kole and agencies completed.
Kuttanad wetlands X - External expertise engaged to support and
guide activities of the agencies.
- Policies developed and implemented for
responsible livestock management
practices, including biowaste
management and animal carcass disposal

- Strengthen policy - Schemes incentivizing / promoting

framework to promote integrated farming techniques including
integrated farming inter-cropping, multi-cropping, rice-cum-
systems specific in fish farming, off-season duck rearing, calf
specific agroecological X rearing etc. designed
zones for risk mitigation,
- Improve planning of investments in
resilience and soil health
consultation and coordination with other
enhancement
allied agencies

- Strengthen policy - Schemes incentivizing/promoting resilient

framework to promote crop varieties designed. Production tested
disaster resilient crop X and sustained
varieties in specific
agroecological zones

Institutional

133
This model has been demonstrated in Andhra Pradesh

232
 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond

Re-engineer and re- - Concurrent evaluation of the functioning

organise the Department and timely course correction
of Agriculture and
- Effective and timely data collection and
Farmers’ Welfare on
information dissemination
Agro-Ecological
Management Units. The - Digitized workflows to hasten monitoring
major focus shall be: and implementation period of schemes,
and last mile delivery improved.
- Develop “Agriculture 4.0”
ICT-GIS-based Decision - Real-time monitoring of physical and
Support System (DSS) for financial progress of schemes and AEMU
evidence-based, data- masterplans lead to better outcomes.
driven development of - Extensive report generation facilities
the Agriculture sector developed to reduce personnel’s
- Comprehensive workload in non-core activities (e.g.
Monitoring framework generating reports for multiple higher-
ups, addressing audit queries)
- Revamp and strengthen
extension activities using - Data-driven monitoring / decision-
ICT system for data X support features developed including soil
collection, management health monitoring, dynamic crop
and dissemination. calendar, water availability monitoring,
Programme for area specific data for time-bound farm
enhancing economic advisory, disease and pest management
viability of Agricultural etc.
sector, leveraging the - Agriculture Institutions at all levels
technological tools being provided connectivity and linked to DSS,
developed and made improved economic return, Avoidance of
available through the duplication in data collection and related
dynamic Start-up wastage of resources, Effective
ecosystem in the State. coordination of various agencies and
- Establishing a unified Improved economic return.
single platform for inter-
agency data aggregation
and sharing between
various agencies and
departments in the
sector.

- Modernize the - technical capacity of Staff and resources

Department of enhanced in Krishi bhavans for effective
Agriculture and Farmers’ X service delivery
Welfare with redefined
roles and responsibilities

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 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond

of Agriculture Officers - Roles and responsibilities of Agriculture

and required officers redefined to focus more on
infrastructure and farmer-focused activities
technology.
- Krishi bhavans ICT-enabled and linked to
- Establish a Centre for directorate’s ICT-based monitoring
Excellence for Precision systems
farming and micro
- Provide focused attention on modern and
irrigation
efficient use farming techniques and
water usage.

Investments Planning

- Develop strategic plan for - Value chain studies of key Kerala crops
Agro-marketing of key undertaken
Kerala crops (including
- Roadmap for promotion of key Kerala
disaster resilient
X crops developed
varieties) with strategy
and roadmap for - Roadmap to increase net cropped area
maximizing private sector under disaster resilient crop varieties
funds for development developed

- Detailed assessment of - Capital Investment planning and

source-wise net irrigated implementation aligned with the
area and inventory of requirements of agriculture requirements
X
canals and sub-canals in the production areas with supplies
servicing cultivation in regulated to the requirement of crops
the respective areas cultivated in each season

- Develop investment / - Roadmap for increased cultivable area

implementation roadmap and enhanced soil fertility developed
for restoration of soil
X - Comprehensive recovery of soil health
fertility and repair /
from the damages suffered during floods,
reclamation of farmland
Roadmap for increased cultivable area
damaged in floods
and enhanced soil fertility developed

4.8.6 Technical Studies and assessments

The list of studies to be carried out to support the above policy, institutional and investments activities is
provided below.

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 Table 33: Agriculture List of Studies

0-6 0-18 18 months

& beyond
List of studies months months

Policy

Conduct review of policy environment and develop

recommendations to promote disaster resilient crops, integrated
X
farming systems and agroecological approach

Institutional

Conduct Institutional assessment of Department of Agriculture,

identify gaps and develop re-engineering/restructuring roadmap
X
and effective operational mechanisms for alignment with
agroecological approach and effective delivery of schemes and
services.

Enhance disaster response capabilities of the Agriculture X

department

Review current institutional pathways for development of

Kuttanad and Kole region, and recommend structure of Kuttanad
X
and Kole Transformation Councils and operational mechanisms to
coordinate with line departments for effective implementation

Other

Develop strategic paper for agro- marketing of key Kerala crops X

including studies on value chains,

Undertake value chain studies of key Kerala crops (including

X
selected disaster resilient crop varieties)

Develop strategy and roadmap to expand awareness of crop

X
insurance and improve uptake

Study of the impact of unprecedented flood on soil health and X

fertility

Assessment of the influence of crops and cropping pattern being X

followed in hill slopes on the increasing land slide probability and
Study of possible solutions based on global best practices

Agro-ecological zone-based evaluation of factors affecting X

productivity of various crops and preparation of probable best
practice solutions.

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4.9 Animal Husbandry and Dairy Development

4.9.1 Introduction
The Animal Husbandry sector plays a pivotal role in the socio-economic development of Kerala and has
great potential to contribute to the regional economy. Animal husbandry and allied sectors have shown
promising improvement in recent times, with the milk production increasing from 21.19 lakh metric tons
in 2006 to 25.72 lakh metric tons in 2018 and egg production from 119.39 crore in 2006 to 250.38 crore
in 2014. Meat production has increased from 1.9 lakh metric tons in 2006 to 4.68 lakh metric tons in 2014.
The contribution of the animal husbandry sector to the Agriculture GDP of Kerala was 27.62% for 2014-
15 (at 2011-12 constant prices), while in 2013-14 the share was 25.2%. As per the, 2017 Economic Review
report the sector contributed 29% to the Agriculture GDP. By 2019-2020 it is expected that the animal
husbandry sector will account for almost one-third of the agriculture sector. Although the production of
milk, eggs and meat has increased in the last decade, Kerala is still not self-sufficient, especially
considering the low in-house market availability of these items. The socio-economic changes observed in
Kerala, necessitate urgent improvements in the sector to meet increasing demands. In addition, droughts
and natural disasters increase the sector’s overall vulnerability. The decline in the livestock population by
23% from 2007 to 2012 is an especially alarming factor. A positive aspect however, is the high productivity
of milch cattle in Kerala due to effective crossbreeding policies.
The animal husbandry sector of Kerala is unique in the country for establishing a minimum of one
veterinary institution in each panchayat, spread across the entire state. Additionally, its disease control
programmes have curtailed the occurrences of economically devastating diseases like foot and mouth
disease, creating a disease-controlled zone in the State which is suitable for export of livestock products
like meat and egg.

4.9.2 Impact of 2018 Floods

During the 2018 floods the animal husbandry sector suffered massive damages including loss of cattle,
buffalo, goat, pig, chicken, duck etc. life and loss to fodder plots, cattle sheds, farms and much more. The
loss in this sector accounted for nearly Rs. 172 crore. This includes loss incurred due to death of livestock,
destruction of animal sheds, damage to feed, fodder and hay, and infrastructure loss. An estimated 5163
adult cattle, 5193 calves, 541 buffalo, 1228 heifers, 6380 goats, 1053 pigs, 11.43 lakh chicken and 4.64
lakh ducks, 20000 quails, and 50 rabbits were reported dead or missing. Loss due to animals is estimated
at Rs. 84 crore. The loss due to damage of animal sheds, feed, fodder plots, infrastructure and other
resources of farmers accounts to about Rs. 60 crore. Infrastructure loss to 214 Dairy Co-operative
Societies, milk production loss due to flooding and damage incurred to Veterinary Institutions together
amounts to about 27 crores. Milk value loss is estimated at around Rs. 3.84 crore.

Immediate Recovery Efforts

The Animal Husbandry and Dairy Development Department was at the forefront of the flood relief
operations. Some of these numerous immediate recovery efforts are summarized below:
 The plan funds of Animal Husbandry Department (AHD) earmarked for disaster management to the
tune of Rs. 70 lakh were immediately released to the various flood‐hit districts for arranging animal

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 rescue camps, on a need basis, to provide temporary shelter, feed, fodder and medical aid to the
rescued animals. A total number of 1172 such camps were set up in the affected areas, catering to the
need of 80538 animals.
 AHD distributed feed in animal health camps worth Rs. 2.68 crore from Kerala Feeds and Kerala Co‐
operative Milk Marketing Federation (Milma).
 Veterinary medicines and vaccines provided by State government, Veterinary Universities and drug
manufactures were rushed to the calamity spots.
 With the intervention of the District Collectors and the Regional Cooperative Milk Producers Unions,
the Dairy Development Department (DDD) could restore the milk collection of the flood affected areas
with minimal interruption.
 The AHD mobilised milk and eggs for human consumption to the rescue camps. The National Dairy
Development Board and AMUL supplied ready to drink milk sachets and milk powder.
 Nearly 40813.5 litres of milk were distributed to relief camps by DDD throughout the State. The
expense of Rs. 14.28 lakh was borne by the Dairy Cooperatives.
 An amount of Rs. 33.75 lakh was provided to flood affected livestock farmers, as part of insurance
claim settlement.
 An amount of Rs. 21.99 crore was distributed to livestock and poultry farmers in the State as
compensation relief through AHD from State Disaster Relief Fund.
 In association with Dairy Co‐operatives, DDD visited 31 relief camps and 582 houses and was able to
provide food and essential commodities worth Rs. 2.42 lakh.
 The UN‐FAO undertook CERF Project to train farmers and officials regarding post disaster management
and supplied various inputs like gumboots, milk can, feed supplements, disinfectants, etc.
 Through the Donate a Cow Programme, an initiative of the DDD, around 300 milch animals were
distributed to dairy farmers who lost animals due to flood.
 The DDD implemented Rs. 22 crore worth of special rehabilitation Programmes for flood‐affected dairy
farmers of the State during the year 2018‐19. Around 3000 milch animals were distributed and 2130
farmers were assisted in shed renovation / shed construction and others in a need‐based manner.

4.9.3 Major Legacy and Current Issues

There has been a paradigm shift from livelihood support to commercial ventures over the last decade. A
robust domestic market for animal products is already in place. There is an organized cooperative network
for milk marketing. Moreover, the State is known for having a veterinary institution operated by qualified
veterinarians in all Panchayaths and Dairy Extension Service Units at the Block level. Dairy farming, poultry
and goat rearing can also be practices in flood-affected areas as they include low investment, minimal
operation and involvement of women workforce. The current issues faced by the sector are the following:
 Growing demand-supply gap in milk, meat and egg
 High cost of production-resulting in declining profits
 Declining trend in cattle population
 Limited land ownership among farmers

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 Shortage of fodder and pasture land. At present the State is facing 60% shortage of fodder. Hence
more dependency on compounded concentrate feed which in turn leads to high cost of production
and reduced profitability.
 Labour intensive dairy farming, and difficulty in finding skilled labour. such as professional milkers
 Waste management issues
 Licensing formalities at LSGIs
 Need for synchronizing and streamlining various laws dealing with livestock and poultry sector
 Animal husbandry activities not considered as a primary agriculture activity. Therefore, interest rated
are much higher than that of agricultural loans.
 Antibiotic residues in livestock and poultry products
 Vulnerability of livestock to various diseases due to uncontrolled animal movement across the border.

Overarching challenges
a) Overburdened grass root level AH and Dairy Institutions: Issues of appropriate utilization of human
resources has been affecting the sector over a period of time, especially in veterinary dispensaries
and hospitals under the AHD and Dairy Extension Service units as part of the DDD. Staff are currently
overburdened with administrative activities and are thus unable to provide industrial output and
extension services to livestock farmers. The staff strength has not been augmented over the years.
More technical and ministerial staff are needed in the veterinary dispensaries and hospitals, research
stations, vaccine production units, state dairy labs, regional labs, check post labs, dairy extension
service units, dairy training centres, etc. The delegation of powers of the field level implementing
officers also needs to be revised. Greater focus on staff deployment at panchayath, block, district and
directorate level would ensure effective monitoring and end user service delivery.
b) Streamlining of various departments and agencies: Government departments like the AHD, the DDD,
and public sector undertakings associated with these departments (such as the Kerala Livestock
Development Board, Kerala State Poultry Development Corporation, Kerala Feeds Limited, Meat
Products of India and Milma and the Kerala Dairy Farmers Welfare Fund Board) are involved in
undertaking various programmes for livestock and poultry sector in the State. The R&D part is taken
up by the Kerala Veterinary and Animal Sciences University (KVASU). To avoid duplication and
fragmentation, there is a need to clarify distinct roles of these agencies in the sector according to their
core competencies.
c) Limited use of technology has hampered developmental efforts: At present, there is minimal use of
ICT tools in development, extension and programme implementation within AHD, DDD and allied
PSUs. This has led to reduced efficiency and a disproportionate allocation of time to peripheral tasks.
There is a need for an MIS that can track physical and financial progress and generate real time
reports. ICT and GIS based monitoring are required to ensure that schemes are targeted and
implemented in an efficient and time bound manner.
d) Lack of proper cold chain from farm to fork level: The lack of scientific cold chain maintenance from
farm level to consumer level is a big constraint, that in turn affects the organoleptic, physicochemical
and microbiological quality of milk, milk products, meat and meat products.
e) Insufficient quality assurance facilities at State border check posts: The quality of milk transported
across the border from neighbouring states need to be evaluated, analysed on a real time basis, and
corrective measures must be taken. Inferior quality of milk, presence of adulterants, neutralisers,

238
 preservatives and antibiotics have been reported in recent times. This is a public health concern. The
same applies to meat also and this needs to be addressed.
f) Mechanisation: Inadequate mechanisation of dairy farms in the State is adversely affecting the
efficiency, business profitability and the quality of raw milk produced.
g) Lack of statutory powers for officials: There is a lack of statutory power entrusted with DDD officials
for testing milk and milk products (Quality Control Officers for sampling, testing and initiating legal
action against defaulters), or with AHD officials for testing the quality of meat, egg products and
checking for antibiotic traces, etc. This a cause of concern in enactment of law against defaulters and
for ensuring safe and quality food to consumers.
h) Shifting from substantive farming to entrepreneurship: Commercial dairy farms with more than ten
milch animals will be encouraged state-wide. It is necessary to implement a phased shift from
subsistence farming with 2-3 milch animals to commercial farming. Dairying needs to be treated as a
livelihood support programme, as well as a commercial activity.

4.9.4 Proposed Approach to Resilient Rebuilding

239
Figure 38: Strategic Frameworks for Improving the Resilience of the Animal Husbandry & Dairy Sectors

240
 Implementation strategy and structure
Re-engineering institutional framework for effective last mile delivery: The institutional framework faces
several challenges, including functional and coordination issues between different departments and
agencies, overburdened grassroots level institutions, capacity gaps at multiple levels, multiple lines of
reporting, limited focus on the delivery of subsidies/schemes and outdated monitoring mechanisms, etc.
More effective delivery through organizational restructuring, redefining of roles and responsibilities,
strengthening staffing, infrastructure development and capacity building must be ensured. Utilisation of
modern extension technologies for imparting updated information and soft skills to dairy, livestock,
poultry farmers and stakeholders will be ensured. Integration with LSGIs will be taken up.
Reorganization of Animal Husbandry Department: The AHD has veterinary hospitals/dispensaries at the
grassroots level that are manned by a Senior Veterinary Surgeon/Veterinary Surgeon, Livestock Inspector,
among others. The Plan allocation of Rs. 20 lakhs has burgeoned to Rs. 270 crores excluding RKVY, Idukki,
Kuttanad and other central schemes which comes to another Rs. 200 crores. Moreover, with the
enactment of the Panchayath Raj Act, Panchayat level institutions of AHD implement schemes funded by
LSGIs, which comes to another Rs. 500 crores. However, staff structure has remained the same. All these
schemes are implemented by Panchayath level institutions. Thus, the farmers lose out on getting quality
and timely veterinary service.
To improve the quality of clinical service delivery to the farmers, and to streamline and increase
effectiveness and proper monitoring of schemes, department institutions need to be reorganized at the
taluk level. This way veterinarians working in clinical institutions can concentrate on improving the quality
and availability of service. Further, there is no veterinary institution at the block/taluk level for
implementation of schemes and projects funded by block panchayath. Hence the demarcation of the AHD
into five major wings is required:
1. Veterinary Services
2. Planning
3. Veterinary Public Health
4. Disease Control, Prevention and Research
5. Special Livestock Breeding Programme
A taluk level office headed by a Deputy Director and assisted by technical and administrative staff is
proposed for the implementation of various State and Central Government schemes, monitoring of
various technical and administrative activities, and performing surprise and detailed inspection of various
animal husbandry institutions in the taluk. The taluk level office should have administrative control over
the institutions of the taluk. Staff from within the department and minor additional post creation can
facilitate this.
Reorganisation of the Dairy Department: The staff at local branches and institutions face significant
challenges, including heavy focus on record keeping and multiple lines of report keeping, which hinder
their ability to work directly with stakeholders. The focus areas of the Department are extension and
advisory services, statutory power of dairy co-operatives, Kerala Dairy Farmers Welfare Fund Board
(KDFWFB) activities, milk quality control activities, and forage production. The Department will be
restructured based on a comprehensive internal assessment with attention to optimizing the skill sets and
tasks of staff. The restructuring will include redefining roles/responsibilities, strengthening institutions,
proper staffing, capacity building, etc. The availability of highly qualified officers at the Panchayath level
will enhance the Department. The following institution level changes are suggested:
 Establishment of Institutions at Gram Panchayat level (Dairy Extension Service Units)

241
 Separate wings for development, quality control, extension and co-operation
 Establishing Quality Control Labs at all border check posts
 Establishing Training Centres in all districts with state-of-the-art facilities
 Strengthening and modernization of all district and state level offices
 Separate regional and district level Nodal offices for KDFWFB
 Strengthening of state, regional and district quality control labs

Development of Veterinary service

 Round the clock service in District Veterinary Centres and two shifts at Veterinary Polyclinics are
essential for effective service delivery to farmers.
 Emergency Night Veterinary Service: This is presently available in 105 blocks out of 152 blocks in
Kerala. Envisaged delivery of emergency Veterinary Service during night hours at farmers doorstep.
Veterinary Service delivery will have to be made available in all 152 blocks.
 Mobile tele-veterinary unit: Advanced diagnostic facilities to provide treatment at farmers doorstep.
Presently the facility is available in Kollam District only. It is proposed to extend the service to the
remaining 13 districts.
 Multispecialty Veterinary Hospital: Two multispecialty veterinary hospitals to act as top referral
centres must be established at the Northern and Central regions. One such veterinary hospital is
presently working at Thiruvananthapuram.
 Establishment of a Research & Development wing at the State Institute for Animal Diseases (SIAD),
Institute of Animal Health and Veterinary Biologicals (IAH & VB), Palode and KVASU for promoting
translational research with field level implications.
 Fermenter technology for vaccine production with GMP standards to be established at IAH & VB,
Palode for production of Duck Plague vaccine.
 Establishment of anti-rabies vaccine production facility with one health concept at IAH & VB Palode
as part of Rabies control strategy in Kerala.
 Strengthening border check posts under AHD with adequate infrastructure facilities and technical
human resources for effective monitoring of interstate animal movement.
Improvements in livestock and poultry development: Livestock and poultry rearing are significant
sources of income of the farming community. To promote livestock production and thereby double
farmers income, the following interventions are essential:
 Scientific rearing of calves: To extract the full production potential of milch animals, all calves born in
Kerala are to be brought under the scientific calf-rearing programme that includes veterinary health
care, nutrition, and risk management. With this programme, it is possible to replace 20% of the total
breedable stock every year, thereby ensuring a stable population of milch animals in the State.
 Crossbreeding: Increase the productivity of the existing stock in the State, through breed
improvement and production increase due to better management, ultimately leading to an increase
in milk production in Kerala.
 Sexed and sex-sorted semen for artificial insemination: To increase the number of female cattle and
buffalo in the State to a desirable level, the production of sexed semen for conservation and
propagation of elite indigenous germplasm of cattle and buffalo could be considered. As part of this
programme, a facility needs to be established for producing sex sorted semen doses of cattle and

242
 buffalo breeds, including the Sunandini crossbred cattle of Kerala, at the Mattupatti semen station of
Kerala Livestock Development Board (KLDB).
 Comprehensive insurance coverage for livestock population: Risk management and insurance are an
integral part of veterinary health care. Feasibility scope has been undertaken for establishing a
“master policy” for nearly five lakh milch cows in the State.
 Activities for promoting entrepreneurship: Livestock and poultry farming should be recognized as
activities at par with Agriculture for State support. Single window support system could be established
for obtaining pollution control certification and licensing formalities from LSGIs. Also fodder
production needs to be enhanced through the promotion of fodder bailing and barren land cultivation
and self-help groups can be supported in fodder cultivation.
 Goat rearing: Goat farms will be strengthened for production and supply of quality kids to farmers.
Areas with ample fodder must be identified and provided with goat satellite units. Popular breeds like
Malabari should be propagated. Artificial insemination for goat must be popularised as there is an
acute shortage of bucks.
 Pig rearing: Pig rearing should be promoted as an area specific activity for Ernakulam, Kottayam and
Idukki districts. Pollution-free pig farm models would be popularised and encouraged. To ensure
enough parent stock availability in the State for supplying piglets to farmers, the import of pure breeds
and frozen semen of breeds like Large White Yorkshire, Duroc and Landrace will be undertaken.
 Rabbit farming: Need area specific intervention for rabbit rearing especially in tourist destinations.
Provide assistance to rabbit farmers. Animal Husbandry Department farm to be strengthened for
ensuring supply of rabbits to farmers. Rabbit meat will be encouraged to become part of the diets of
patients due to its high nutritional value and fewer health hazards.
 Chick rearing: To bridge the gap in domestic egg production, the production of chicks through
Department farms will be enhanced to 50 lakhs during 2019-20. Private sector and SHGs like
Kudumbasree are expected to intervene. Egger nurseries functioning under the AHD will be
strengthened by enhancing the production capacity and providing licenses for starting private
hatcheries. New hatcheries to be established in the Government and private sector. New marketing
networks for eggs to be developed by involving agencies like VFPCKs, the Milma, dairy co-operatives,
the Kudumbasree SHGs, and other marketing outlets. The KSPDC can act as the nodal agency. Cage
system of rearing of birds would be promoted in urban areas as part of intensive poultry farming.
Backyard poultry rearing will be promoted as an alternative source of income for the poor with
minimal investments. The Kerala Chicken venture of Kudumbasree will be expanded to cover the
entire State to cater to the broiler meat requirement of Kerala.
 Duck rearing: Though duck farming is a popular activity in Kuttanad and Kole wetland area, the sector
is still unorganised. Compulsory licensing and registration of duck farmers and hatcheries will be
instituted, especially in Kuttanad area and Chara and Chempalli breeds of ducks will be promoted. A
single window system will be established for facilitating farmers entry into duck rearing activity. Duck
farm and hatchery will be established in Northern districts of Kerala.
 Quail farming: Due to the recent demand as an alternative nutritive meat and egg, quail meat has
gained much attention. Quail farms in the private sector will be promoted through subsidy schemes.
Regional quail hatcheries will be established under the AHD.
Research and Development: Research for developing new broiler breed suitable for Kerala will be taken
up by KVASU. Research for producing bio-fuel from poultry and other bio-waste will be promoted as part
of environment-friendly future.

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Innovative technological interventions: Proper record maintenance regarding identification, production
and breeding activities of animals are needed for effective and timely intervention in planning, disease
control, proper utilisation of available resources, etc. Radio Frequency Identification (RFID) can be used
for identification of animals which will ensure uniqueness, traceability of animal and its products,
transparency and prevent fraudulence. This also provides data on individual animals.
Establishing distinct dairy zones: The entire State will be divided into 4 distinct dairy zones based on
factors like climate, geography, number of families involved in dairying, availability of milch animals,
productivity of animals, fodder availability, availability of free space for fodder cultivation, availability of
pasture lands, locally available feed stuff, availability of dairy cooperatives, marketing options, veterinary
health facilities, etc.:
1. Highly Potential Dairy Zone
2. Prospective Dairy Zone
3. Mediocre Dairy Zone
4. Challenging Dairy Zone
The mode of dairy development in each zone shall be unique in respect to factors like the type of milch
animals, shed constructions, type of fodder to be propagated, marketing options, etc. The strategy
adopted shall encourage tapping available and locally available natural resources.
Herd Induction Programmes and Heifer Parks: Herd Induction Programmes can be a short-term strategy
for gap filling and compensation for loss of milch animals due to the floods. As a part of developing future
bench stock, heifer parks will be established in all the districts. Heifer parks with a minimum of 100 heifers
each will be created in all blocks, selected dairy co-operatives and potential groups. The Heifer parks will
be the future epicenter for distribution of milch animals to farmers and entrepreneurs.
Introducing calamity-resistant dairying/livestock/poultry farming technologies: Specialized farming
technology (dairy farmers, other livestock farmers and poultry farmers) for natural calamity prone area
will be developed and introduced. Techniques like elevated community cattle sheds in all the Panchayats
of Kuttanad and Vaikkom, and elevated cattle sheds for mediocre and commercial farmers in flood-prone
areas need to be propagated and established. Water resistant and drought resistant fodder varieties need
to be developed and introduced to the farming community.
Extensive fodder development programme: The State has a 60% shortage in fodder availability. The DDD
is the nodal agency for fodder development in the State. Specific and tailor-made programmes must be
implemented for massive fodder cultivation in barren land, waste lands and unutilised lands. The dairy
co-operatives can be considered as an epicentre for this activity. The programme can be better
implemented through the active participation of dairy farmers, dairy co-operatives, LSGIs, etc. The
marketability of the fodder shall be through dairy co-operatives and potential groups.
Ensuring fresh and safe milk, milk products, meat, egg and other livestock products and implementing
Total Quality Management: The gap between requirement and availability in livestock products is now
met through cross border transportation. The quality of milk, meat and egg crossing the border and
reaching Kerala has to be evaluated on a real time basis. The Check post laboratories which deal with milk,
meat and eggs will have to function 24 X 7 and be equipped, strengthened, modernized with adequate
manpower. Additionally, the AHD and the DDD officials will have to be given statutory power for sampling
and testing of milk, milk products, meat, water, cattle feed and other livestock products. Quality Control
Labs at district level, mobile quality control labs and labs at dairy co-operatives will have to be reorganized
and strengthened.

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Premium, organic milk and A2 Milk for better price and export: The concept and technology of farm
fresh milk, premium quality milk, organic milk and A2 milk need to be popularised and exploited. Premium
price for premium products will add to the profitability of the dairying activity
Pollution control and energy conservation systems in dairy sector: Efforts will be made to establish
scientific and low-cost Effluent Treatment Plants, biogas plants, rainwater harvesting and energy
conservation suitable for small and commercial dairy farms, dairy co-operatives, value addition centres
and Bulk Milk Chilling Units. Green Dairying Concept, eco-friendly dairying and livestock concept will be
given a pivotal thrust during the coming years.
Enactment of Law for ensuring the safety and quality of cattle/poultry feed: Ensure the quality of raw
ingredients of cattle feed and the quality of cattle feed/poultry feed sold in Kerala. At present, there is no
strict law or rules to control the quality of cattle feed/poultry feed actually produced and marketed in the
State, hence a law governing and managing the quality of raw ingredients and finished cattle/poultry feed
will ensure profitable livestock farming.
Automation and mechanisation of farm level activities and dairy co-operatives: Dairy farm activities
need to be mechanised and automated. The reduction in overhead expenses will add to the profitability
of dairying activities. Automation/mechanisation will also help to improve the quality of milk produced at
the farm level and milk handled, stored, processed at dairy co-operative society level.
Value addition of milk, meat and poultry products is a must to take advantage of fluctuating market
conditions. This will enhance profitability and sustainability for producers.

Monitoring framework
The AHD, the DDD and various associated PSUs like the Milma, Kerala Feeds, Kerala Poultry Development
Corporation, Meat Products of India, KDFWF, etc. are hindered by various shortcomings. A department-
level monitoring system may be established for following up on the statutory and legal framework, as well
as making the organisational structure for decision making and implementation more effective. An ICT-
based monitoring system using GIS and RFID technologies to track livestock, proactive veterinary service
and monitor delivery of animal husbandry as well as dairy development schemes could be established.

Participatory implementation of the activities

Selection of beneficiaries: The beneficiary selection of schemes and projects for the sector is made
through Grama Sabha which ensures peoples participation. Most of the schemes implemented in this
sector are routed through Dairy cooperatives and established groups. Youth and students are selected as
beneficiaries through school poultry and dairy clubs.
Assurance of financial stability and social security to the dairy, livestock and poultry sector: Social
security concerns exist for the dairy farmers and other livestock farmers. The high treatment cost incurred
for cattle and cattle owners is an alarming factor. It is adversely affecting the profitability of the sector.
The cattle and cattle owners, and poultry farmers will have to be brought under a comprehensive
insurance coverage scheme implemented by AHD and DDD.
Increasing member participation in dairy co-operatives and diversification: It is estimated that in Kerala
8 lakh families are involved in dairying activities. However only 20% of these come under the co-operatives
umbrella. Ensuring more member participation in dairy co-operatives will help to stabilise the dairying
sector and ensure greater socio-economic security of dairy farmers.

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Marketing strategies for livestock products: Intensive marketing interventions are required for livestock
products such as milk, meat and egg. There is a need to look beyond the co-operative sector and bring in
SHGs like the Kudumbasree. “Kerala Chicken” branding and marketing of poultry meat can be highlighted.
Since there is more demand for farm fresh products, farmers could be encouraged to sell farm fresh milk
and eggs from backyard rearing as premium products, which could demand a higher price. Clean meat
production should also be promoted. Scientific slaughterhouses should be established under LSGIs with
adequate technical manpower along with cold storage networks. Frozen meat products should be
promoted. Kuttanadan duck meat and egg should be recognised with Geographic indication (GI) status so
that branding and premium rate can be obtained by farmers.

4.9.5 Specific Interventions

a. Animal Husbandry
Table 41: Priorities and Criteria for Animal Husbandry

Activity Criteria
Emergency veterinary night service Round the clock veterinary service at farmers
doorstep

Establishment of anti-rabies vaccine facility Veterinary public health importance

Sex-sorted semen Increase female cattle population of the State
Comprehensive insurance package for livestock Risk mitigation and management
with a master policy
Scientific female calf rearing Increase production and productivity
Fermenter technology for vaccine production Disease control
GIS and RFID Traceability and transparency
R&D for broiler breed suitable for Kerala For meeting the demand for poultry meat
R&D for swine fever vaccine production For effective control of swine fever

b. Dairy Development
Table 42: Priorities and Criteria for Dairy Development

Activity Objective
Establishment of Distinct Dairy Zones To ensure more scientific planning of projects and
schemes focusing livelihood support to dairy
farmers for ensuring better business opportunities;
improved nutrition security to the State; quality
milk favouring export marketing; availability of
organic inputs; and empowerment of women and
the SC/ST population.

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 Establishment of Heifer Parks To ensure better bench stock of milch animals and
to reduce the extent of animal induction
Strengthening quality control laboratories at the To ensure safe and quality milk meeting legal
State, regional and district levels and establishing standards
permanent check post laboratories
Establishing e-governance in the Department and To ensure efficient resource mapping and planning,
developing unified software for dairy transparency and accountability of all operations
cooperatives
Strengthening of dairy cooperatives To ensure greater participation in the cooperative
sector, fair price and steady market to dairy
farmers, enhanced people’s participation
Massive fodder production schemes To reduce the cost of production, improve farmers
income and provide a better quality of milk and as a
productive soil conservation activity
Schemes promoting processing and value To improve nutritional value, market penetration
addition activities of milk ensuring better price to farmers
Comprehensive insurance scheme To ensure the welfare of both dairy farmers and
animals in the sector
Promoting energy conservation activities, To aim eco-friendly dairy farming, dairy processing
pollution control activities and non-renewable
energy production
Restructuring and reorganisation of Department, For effective management and implementation of
including infrastructure development schemes for the sector and better service delivery
Creation of infrastructure for resist natural Resilient dairy sector to overcome challenges
calamities (flood and drought) in the sector caused due to natural calamities

Table 43: Animal Husbandry, Dairy Development Actions and Result Framework

0-6 0-18 18
months months months
Activities Expected outcome
&
beyond

Policy / Regulatory

AHD and DDD restructured with

Restructuring the AHD and DDD at improved functional efficiency
Directorate level, district level,
block level, panchayat level with X Delineation of revised roles and
clear roles and responsibilities for responsibilities of human
more effective delivery of activities. resources completed and
functional

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 0-6 0-18 18
months months months
Activities Expected outcome
&
beyond

Schemes incentivizing/
promoting integrated farming
techniques including cattle
rearing, duck rearing, goat
rearing, rabbit rearing,
Strengthening the policy framework
aquaculture integrated with
to promote integrated livestock X
other agriculture activities, etc.
farming systems.
Improved planning of
investments in consultation and
coordination with other allied
agencies.

Strengthening the policy framework

Reduction of natural disaster
to promote disaster resilient
X losses in diary and livestock
dairying and other livestock
sector.
activities.

Institutional
Improved follow up on
Establishing an ICT-based statutory and legal framework,
monitoring system to enhance the X as well as more effective
effectiveness of the AHD, the DDD decision making and
and various associated PSUs. implementation in the
Department.

Establishing an ICT system for data Effective and timely data

collection, management and collection and information
X
dissemination within and between dissemination.
department.
Asset registry of livestock
Geo-mapping of livestock assets
assets.
like institutions, animals, sheds, X
farmers, etc.

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 0-6 0-18 18
months months months
Activities Expected outcome
&
beyond

Establishing four distinct dairy

zones in the State based on dairying
related factors. More eco-friendly, resilient,
1. Highly Potential Dairy Zone X productive and market-oriented
2. Prospective Dairy Zone diary development.
3. Mediocre Dairy Zone
4. Challenging Dairy Zone

Establishing new veterinary and

dairy development institutions and
More timely and effective
restructuring existing institutions at
X service delivery to livestock
district / block / panchayat level as
farmers and other end users.
per currently existing gaps in
service delivery.

Developing ICT based monitoring

systems using GIS and RFID
technologies to track livestock,
Efficient management and
proactive veterinary service and X
planning.
monitor delivery of animal
husbandry and dairy development
schemes.

Investments

Enhanced emergency veterinary

Launching emergency night
X care for livestock during night
veterinary service
hours.

Establishing mobile tele-veterinary Advanced clinical services at

unit with advanced diagnostic X the farmers doorstep.
facilities in all districts

Setting up multispecialty veterinary Enhanced veterinary referral

X
hospitals. care across the State.

Establishing fodder research station Fodder with better yield and

at State Fodder Farm, Valiyathura, X calamity resistant properties
Thiruvananthapuram. developed.

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 0-6 0-18 18
months months months
Activities Expected outcome
&
beyond

Establishing Centre of Excellence in

Improved food safety and
Food Safety Aspects (CEFSA) at X
certification.
Alathur, Palakkad.

Establishing Dairy Entrepreneurship Enhanced diversification and

Development Centre at X entrepreneurship among dairy
Kulathuppuzha, Kollam District. farmers and producers.

Establishing anti-rabies vaccine

production facility at IAH&VB, X Rabies-free Kerala by 2030.
Palode.

Conducting R&D in developing an Enhanced availability of broiler

ideal broiler poultry breed suitable X poultry to meet the State
for Kerala conditions by KVASU demand.

Establishing Duck Pasteurella

vaccine production facility using Enhanced protection of floating
X
fermentation technology at population of ducks.
IAH&VB.

Establishing R&D facility to develop

cell culture based classical swine X Effective control of swine fever
fever vaccine to promote piggery.

3673 registered dairy co-

operatives will be provided with
unified accounting and
administration software with
integration provisions for all
stakeholders like Dairy
Enabling e-Governance in the DDD
Department, regional unions
and establishing unified software
etc.
solution for all the dairy co- X
operatives of the State integrating
all stakeholders E-office will be implemented in
the Dairy Development
Department offices.

To ensure transparency and

accountability of activities

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4.9.6 Technical Studies and Assessments

Table 44: Animal Husbandry Studies and Assessments

0-6 0-18 18 months &

List of studies
months months beyond

Policy / Regulatory

Comprehensive study to access the women participation in

X
Dairy Co-operatives and Dairying Sector

Institutional

Conduct institutional assessment of Animal Husbandry and

Dairy Development, identify gaps and develop a restructuring
X
road map and effective operational mechanism for effective
delivery of schemes and services

Review current institutional pathway for the development of

Kuttanad and Kole region and recommend the structure of
Kuttanad and Kole transformation councils and operational X
mechanism to coordinate with line departments for effective
implementation

Investment Planning

Data Bank Creation - Comprehensive Survey to study the Milk

X
Procurement Pattern through DCS and other means.

Undertake value chain studies on key animal husbandry

X
activities

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4.10 Fisheries
4.10.1 Introduction
Kerala is endowed with natural resources to support a fisheries sector that has significant potential to
make a much larger contribution to economic growth and social development, while ensuring its
sustainability and resilience to climactic-shocks. The Indian Ocean is one of the most biologically
productive areas in the world. Inland are numerous productive waterways, and substantial area and
suitable agro-climatic conditions for aquaculture. Globally, demand for protein-rich fisheries products
continues to rise, providing opportunities for ocean-facing States such as Kerala. With the world
population continuing to climb, and increasing incomes shifting fish consumption habits, demand for fish
will continue to grow. With it, opportunities for ocean-facing and aquaculture-proficient States across
India will increase.
Kerala's fisheries contribute to economic growth and social development, but their full potential is not
being realized. Prior to the 2018 devastating floods, the fisheries sectors’ contribution to State GDP was
Rs. 7086.32 crore, or 1.36% but 11.49 % of primary products such as agriculture and allied activities and
employed a reported 11 lakh people directly and indirectly. Yet, even before the floods and significant
damage to the sector, parts of the sector were struggling: the marine capture fishery has been suffering
decreases in production and per-unit value due to overfishing and poor quality. The aquaculture industry
is growing, albeit slower than it could as it lacks crucial planning and governance arrangements. Post-
harvest processing of fish is hampered by quality control issues and outdated technologies, and much
processing capacity is focused on lower-grade products (i.e. fishmeal).
The right reforms could unlock far greater benefits. A clear vision, prioritizing resilience and sustainability,
strategic investments and improved governance could put the fisheries sector on a climate-smart and
solid development pathway. Urgent action to address overfishing and IUU fishing could preserve the
productivity of the marine resource for future generations. Consistent implementation of the recently
legislated Fisheries Policy could help coordinate development, ensuring that tradeoffs are well
understood, and complementarities are realized among interlinked sector components. Improvements to
biosecurity and food safety systems could help Kerala gain even greater access to lucrative markets,
including international markets, and reduce risks that hold back private investment. Fisheries could also
bring considerable benefits for human health, particularly food security and nutrition. Fish is a source of
proteins, healthy fats, and essential micronutrients—all extremely valuable in the context of India's high
level of malnutrition and childhood stunting from poor diets.
The time is right for the State to launch a strategic programme of support where increased fisheries
production, both captured and cultured, and improved value-addition drive both domestic and export-
oriented growth, while maintaining an ecosystem-based focus for resilience and sustainability. Such "blue
growth" prioritizes the sustainable management of natural aquatic resources in the delivery of economic
and social benefits. It minimizes environmental degradation, biodiversity loss, and the unsustainable use
of resources, while maximizing the economic and social benefits that build strong communities. The
approach also aims to help workers in fisheries, aquaculture, and along the seafood value chain to act not
only as resources users but to play an active role in managing natural resources for the benefit of future
generations (FAO 2015a). This also builds on a new Fisheries Policy revised post-floods (February 2019)
in order to help rebuild the sector and the infrastructure and livelihoods lost from the floods. However,
actualizing and implementing the new fisheries policy will require a comprehensive Master Plan with a
clearly specified Matrix of Actions that prioritizes and sequences activities with correctly specified
budgets; This document lays out a framework for such a Master Plan. There is no question that the 2018
floods severely affected the inland fisheries sector, destroying fisheries infrastructure and livelihoods with

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significant financial cost and human lives lost and adversely affected. Our state is making important
strides to ‘build back better.’ And while often overlooked, a revitalized, resilient and climate-smart post-
flood fisheries sector could be one important sector driving sustainable growth for decades to come.
The fisheries sector has always been important in the socio-economic scenario of Kerala. With a 590 km
long coastline, a continental shelf area of 39139 km2, around 4 lakh hectares of inland water bodies like
brackish water lakes, backwaters, estuaries, rivers, reservoirs, ponds, tanks etc. and an estimated 11.03
lakh people dependent on fisheries for their livelihood the sector plays an important role in the State’s
economy and in the nutritional security of the people. The number of active fishermen in the State is
around 2.36 lakh. There are 222 fishing villages in the marine and 113 fishing villages in the inland sector.
Besides the direct dependence of the above-mentioned population on fisheries, it also offers other
employment avenues in fisheries related and ancillary industries.
Kerala stands fourth among Indian states in total fish production. The annual total fish production of
Kerala during the last four decades (1977-78 to 2016-17) is presented in the figure below. It may be seen
that the annual total fish production of the State has grown from around 3.50 tonnes in 1978-79 to 7.28
lakh tonnes in 2015-2016. During the last decade, however, total fish production of the State has
stagnated between 6.77 and 7.28 lakh tonnes, the figure being 6.76 lakh tonnes in 2016-2017.

Figure 39: Fish production of Kerala during the period from 1977-78 to 2016-2017

800000
700000
600000
500000
400000
300000
200000
100000
0
1977-78

1979-80

1981-82

1983-84

1985-86

1987-88

1989-90

1991-92

1993-94

1995-96

1997-98

2001-02

2003-04

2005-06

2007-08

2009-10

2011-12

2013-14

2015-16
1999-2000

Marine fish production (tonne) Inland fish production (tonne) Total fish production (tonne)

Fisheries sector is important from the point of view of its contribution to the SGDP. However, this
contribution has steadily decreased from 2.24% in 1999-2000 to 1.04% in 2011-12. Thereafter it showed
an increasing trend and reached 1.58% in 2016-17. Fish also contributes to the export basket of the
country and exports from the State contributed 14% in terms of quantity and 13% in terms of value to
total seafood exports from the country during 2016-17, i.e., 1,59,141 tonnes worth Rs. 5.008.54 crores.

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Fisheries sector is also important from the point of view of nutritional security of the State. For the
domestic consumer, especially those belonging to the lower echelons of the society, fish is the only
affordable source of high-quality protein, essential vitamins and micronutrients. As a health food, certain
species of fish are gaining importance on account of their medicinal properties.
Marine capture fisheries have always dominated the total fish production in Kerala. With an average
annual production of 5.44 lakh tonnes (2007-08 to 2016-17) the State is in the forefront in marine fish
production in India. Marine fish production of the State during the last three decades fluctuated between
2.86 lakh tonne (1987-88) and 6.60 tonnes (1996-97). Fish production in the marine sector over the last
10 years presents a more or less stagnant trend with an average production of 5.44 lakh tonnes. It may
be noted that the marine fish landing of the State has almost attained or even exceeded the optimum
level of production. There is little scope for further increase in fish production from inshore marine
capture fisheries sector by increasing the fishing effort.
Kerala is yet to make a noteworthy contribution in the field of aquaculture. While the aquaculture sector
contributed more than 50% of the total fish production in the country, the share of the sector in total fish
production of Kerala is less than 10%. The sector is showing a declining trend during the last three years.

Figure 40: Farmed fish production in Kerala

0.6
0.4
0.2
0
2011-2012 2012-2013 2013-2014 2015-2016 2016-2017

With marine catches stagnating and aquaculture not really taking off, Kerala’s pre-eminence in the
fisheries sector is slowly diminishing. Kerala’s fish processing industry is still dominated by shrimp and the
capacity utilization is estimated to be about 20%. Shortage of raw material is one of the major reasons for
this low capacity utilization.
In spite of all these, Kerala has one of the highest per capita consumption of fish in the country. The per
capita consumption of fish in Kerala is around 24 kg which is much above the national average (3.3 kg)
and is slightly above the global average (20 kg). Around 87% of the people of Kerala are fish eating
population.
Despite the significant contribution of fisheries to nutrition, food security, sustainable livelihoods and
poverty alleviation in the State, the issues constraining the sustainable development of fisheries remain
poorly addressed. To add to this, the 2018 floods badly affected the fisheries sector. Inland capture
fisheries and aquaculture sectors were particularly affected. The State is attempting to rehabilitate and
rebuild this sector. Aquaculture has been recognized as one of the fastest growing food production sectors
in the world but is vulnerable to climate change and this sector is the only alternative source to be relied
on for increasing the fish production in the State. Aquaculture has a vital role in contributing to food
security and poverty alleviation in India and many other developing countries. Specifically considering the
prevailing climate change conditions in Kerala, the production efficiency needs to be increased in both
capture and culture fisheries in a resilient manner, while keeping in check the possible vulnerabilities to
the natural resources of the State. This, in turn, necessitates development of strategies for enhancing and
increasing food production without damaging the environment and disturbing ecological balance. Despite

254
the significant contribution of fisheries to nutrition, food security, sustainable livelihoods and poverty
alleviation in the State, the issues constraining the sustainable development of fisheries remain poorly
addressed.

4.10.2 Impact of 2018 floods

The aggregated loss due to recent floods for aquaculture and inland capture fisheries is estimated to be
Rs. 10,304 lakh and the aggregated damage is estimated to be Rs. 8450 lakh. In terms of breakup, the
losses and damages were Rs. 8866 lakh and Rs. 6584 lakh respectively for aquaculture, and Rs. 1058 lakh
and Rs. 348 lakh respectively for inland capture fisheries. The hatcheries, fish farms and field offices
owned by Government also suffered losses and damages worth Rs. 380 lakh and Rs. 1518 lakh
respectively. The worst affected districts in the State were Thrissur, Alappuzha, Kottayam, Ernakulum,
Pathanamthitta and Idukki.
The losses and damages were mainly as a result of breaches of bund, overflow and damage to pumps and
other farm equipment. The total expenditure for recovery in the fisheries and aquaculture is estimated to
be Rs. 17,901 lakh. The damage assessment for inland fisheries and aquaculture infrastructure included
boats, engines, fishing crafts and gear, damage to bunds, pumps, tanks, fences, cages and farm
equipment. Losses to government-owned hatcheries, fish farm and field offices were also included in the
assessment. As per the available data, a total of 1208 fishing crafts were reported to be damaged or lost.
Majority of new small private aquaculture investments were severely hit by floodwater up to 6 to 12 feet.
Most losses and damages were suffered by the fish culture, followed by shrimp, brackish water fish, one
paddy one fish culture and cage culture.
Damage and loss: As per the PDNA, the total damage and loss, and recovery needs for this sector
estimated to be as follows:

Damage Loss Total Effect Total Recovery Needs

(Rs. crore) (Rs. crore) (Rs. crore) (Rs. crore)

85 101 186 179

The Ockhi disaster of 2017 and the flood of 2018 shattered the fisheries sector of Kerala. To mitigate the
losses and damages in the fisheries sector, a comprehensive Master Plan is needed. The rebuilding and
sustainable development of the fisheries sector is vital for improving the State economy and nutritional
security. The recovery vision for the sector is to develop a sustainable, responsible, inclusive, eco-friendly
and resilient aquaculture and fisheries resource management measures consistent with the policies of the
GOK and the GOI. To realize this vision, it is essential to develop a strategic plan for sustainable fisheries
sector development with short-, medium- and long-term goals. The immediate to short-term measures
for the recovery of fisheries will focus on the revival of aquaculture and inland fisheries system and
cleaning of water bodies. In the medium term, it is essential to strengthen the Kerala Inland and
Aquaculture Act, development of fisheries co-management in marine sector, systematic management of
aqua farms, insurance compliance and de-siltation of water bodies and lakes. Medium- and long-term
activities could also focus on building resilience through environmentally sustainable community-based
management of water resources, setting up of early warning systems, and enhanced GIS/technology
backed capabilities for tracking and management of the sector assets.

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4.10.3 Major Legacy and Current Issues
Despite the significant contribution of fisheries to nutrition, food security, sustainable livelihoods and
poverty alleviation in the State, the issues constraining the sustainable development of fisheries remain
poorly addressed. Major issues constraining the potential of the fisheries are discussed below.

Capture fisheries
Unscientific fishing methods and Increased fishing pressure: Many methods of fishing in vogue are
unscientific leading to resource depletion. Use of ever-increasing engine horse power, very large nets,
nets with very small mesh size, use of powerful light, etc. for fishing leads to depletion of fish resources.
The fishing pressure in the inshore area is much beyond what it can accommodate resulting in resource
depletion.
Environmental degradation: The State of marine environment in Kerala is under stress due to climate
change, pollution etc. Further, factors such as poor effluent treatment on land, plastics (especially, micro-
plastic particles) in the sea and ghost fishing are equally affecting fish stocks. Water pollution, habitat
modifications, sand mining, loss of breeding grounds, shrinkage of inland water bodies, mangrove
deforestation are also important issues which leads to depletion of fish resources.
Inadequate management of marine fisheries: Management of marine fisheries in Kerala does not follow
an integrated approach, blending traditional knowledge and science with business principles and effective
engagement of both primary stakeholders, and also those engaged in ancillary activities to ensure that
fisheries are ecologically and economically sustainable.
Neglect of deep sea fishing: Marine fishing in Kerala is more or less restricted to inshore areas. The
average marine fish harvests from the seas around Kerala are close to the current potential yield
estimates, indicating that there is not much scope for enhancing fish production from the area within 200-
meter depth. On the other hand, the oceanic waters still contain an untapped potential of high value
resources like tuna, tuna-like species, myctophids and oceanic squids. There is also considerable scope to
harvest fishery resources of the high seas or in Areas beyond National Jurisdiction (ABNJ), as done by
many other countries such as krill fishing, etc.
Inadequate Monitoring, Control and Surveillance (MCS) system: The existing mechanisms in place for a
sound and effective MCS regime for marine fisheries sector need further strengthening. Presently, the
Government has an online uniform registration and licensing system (ReALCraft) to register all fishing
vessels operating in the marine sector (traditional, motorized, mechanized and non-mechanized). While
monitoring of fish catch and effort and control of fishing through registration and licensing is in place,
MCS activities needs be further strengthened through greater engagement of the Department of Fisheries
(DoF) Coastal Marine Police and the Indian Coast Guard (ICG).

Aquaculture
Aquaculture is one of the fastest growing food production sectors in the world. The sector contributed
nearly 47% of the total world fish production of 1710 lakh tonnes in 2013 (FAO, 2018). In India the share
of aquaculture to total fish production is around 53%. But in Kerala, in spite of the availability of rich and
diverse water resources aquaculture is yet to take off in a big way and the contribution of aquaculture to
total fish production is only less than 10%. The State has immense potential for the development of
aquaculture in fresh, brackish and marine waters. The principal issues which have a hand in the low-profile
development of aquaculture are:

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Inadequate diversification of species: Freshwater aquaculture in Kerala is at present more or less
restricted to carp culture. However, in Kerala, people generally prefer sea fishes and demand for carps is
limited. Carps generally fetch low price in the State. Under the circumstance a shift from the carp centric
approach is very much required. In the brackish water environment, farming is at present restricted to
the tiger prawn and to a very limited extent to the Indian white prawn. Commercial farming of milk fish,
mullets and that of the white legged prawn (Litopenaeus vannamei) are not attempted to any appreciable
level in the State.
Use of fry as stocking material in farming: In freshwater farming in the State, the stocking material used
are generally the fry or the early finger lings of carps. It needs around 10-12 months for the fry to reach
marketable size. In Kerala which is bestowed with plentiful water and rains for around six months, fresh
water is available in most places for six to seven months a year. However, in most cases, ponds dry up or
water will become brackish during the summer season. In short, fresh water will be available in many
areas only for six or seven months in a year there by restricting the utility of ponds in these areas for
raising freshwater fishes. It points to the necessity of a change in the present system of using fry as the
stocking material. Advanced fingerlings or the yearlings which reach marketable size in 6- 7 months of
stocking are obvious choice to circumvent the situation.
Non-utilization of brackish water ponds year-round: Majority of shrimp farms in Kerala remain idle for
most part of the year. Ponds where two crops in a year are possible are also being used for raising only
one crop, in the light of fear of occurrence of viral diseases. A cropping system which allows year- round
utilisation of the ponds must be popularised, for increasing the aquaculture production. Farming of milk
fish, pearl spot, sea bass, grey mullet, tilapia, crab etc. during the period in which shrimps are not grown
will certainly prove to be beneficial to increase aquaculture production and in improving the profitability
of farm units.
Low productivity of existing aquaculture farms: Among Indian states, Kerala has the lowest aquaculture
productivity. By scientifically designing farms, adopting scientific management practices, species
diversification, crop rotation and by intensification of farming activities the productivity of aquaculture
units in the State can be improved perceptibly. Disease monitoring and management also needs special
mention here. However, Kerala can increase its production per unit area with efficient resource use by
adopting polyculture of key species, (i.e. carp/tilapia – mola for example). This would also increase the
nutritional output per unit area of production.
Non-diversification of farming systems: Kerala, as the land of rivers and streams, has excellent scope for
the development of cage farming. However, cage farming in Kerala is still in an infant stage. Non-
availability good quality seed, absence of species specific feeds, low rate of technology percolation to
farmers, low survival rate etc. are the principal reasons for the unsatisfactory performance of cage culture
units in the State.
Lack of integration of nutrition-sensitive agri- fish farming/ fish- livestock farming: Integration of fish
farming with agriculture and/or live stock is one of the important ways to increase production of fish as
well as agri/ animal crop. It also helps to bring down the cost of production of both the crops. A multi-
commodity farming system is more advantageous to the farmer than the mono cropping system.
However, except the alternate culture of rice and fish in kuttanad, pokkali and kole land area, no
worthwhile attempts are seen made for the integration of agriculture and/ or livestock with fish farming.
Lack of intensification of farming technology: Intensification in aquaculture operations proceeded from
clear water system with proper feed management to zero water exchange because of many advantages
including the bio-security. As part of the concept of delivering high productivity with sustainability many
concepts like Bio- floc based farming technology (BFT) are being evolved. Bio- floc based farming

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technology (BFT) applied to aquaculture is based on the concept of the retention of waste within the
culture system and its conservation to bio-floc as a natural food.
Nonuse of specific pathogen free (SPF) and specific pathogen resistant (SPR) seeds: Use of SPF and SPR
animals will bring down the chances of occurrence of diseases and increases farm profitability
substantially. However, such seeds are not generally in use in the State of Kerala.
Skewed development of farming of molluscs: Aquaculture of molluscs like mussels, though well
developed in some parts of the State, like Kasargod district, is yet to gain popularity in other parts of the
State. Development of farming of molluscs in Kerala is more or less skewed. Farming of molluscs is one
of the most inexpensive ways of producing quality animal protein in the world and backwaters of Kerala
offer very good scope for development, if fisheries rights are exclusively reserved to department.
Neglect of Mari culture and seaweed farming: India has an Exclusive Economic Zone (EEZ) of 2.02 million
km2. Of this 36,000 km2 is adjacent to Kerala coast. The territorial waters, where the State has exclusive
right for fishing extend to 22 km from the coast. Besides the territorial waters, Kerala could utilise, by
formulating appropriate policy and adopting suitable technologies, off shore/open sea areas in the EEZ
contiguous to the coast for aqua farming. This is especially significant in view of the newly evolved
technologies for open ocean aquaculture of tunas and other fin fishes like cobias, groupers and sea bass
along with complementary sea weed farming.
Neglect of reservoir fish production: Kerala has 53 reservoirs most of which come under the category of
small or medium reservoirs. These reservoirs have immense potential for fish production. The potential
of these reservoirs for fish production is yet to be tapped which will be evident if one compares the
productivity of reservoirs of Kerala (less than 20 kg par ha.) with those of other states (around 100 kg per
ha.). It is due to ownership and operating rights over these water bodies.
Inadequate availability of quality fish and shrimp seeds: One of the most important reasons for the low-
profile development of aquaculture in Kerala is the insufficient availability of quality seeds in the
appropriate time. Seed produced in these units are grossly inadequate to meet the seed requirement of
the State. A rough estimate indicates that only 35% of the seed requirement of the State is met by the
seed production centres functioning inside the State and the balance is met by units functioning in Andhra
Pradesh and to some extent by those functioning in Tamil Nadu. Seed brought from distant places are
often weak due to stress caused by handling and transportation which will result in lower production level.
Lack of fish seed certification and accreditation facility: Good quality fish seed is a pre-requisite for the
success of any aquaculture venture. To ensure quality of seed and sustainability in its production process,
it is essential that the hatcheries use brood stock, breeding and husbandry practices as per scientific
norms. Similarly, it needs to be ensured that seed farms use spawn obtained from reliable hatcheries that
follow the norms of quality and sustainability. There is an immediate need for seed certification and
accreditation of seed production centres on the lines of provisions existing in the farming sector.
Lack of species-specific feeds: The nutrient requirement of various species of fin fishes and shell fishes
vary very much. However, in Kerala commercial feeds meant only for black tiger shrimp, scampi and, to a
limited extent, carps are available in the market. In farming other species any one of the above-mentioned
feeds or the conventional ground nut oil cake and rice bran mixture are used by aqua farmers. As a direct
result maximum growth cannot be elicited in many cases, making farming of these fishes uneconomical.
Inadequate infrastructure and supporting facilities: Inadequate seed multiplication centres, seed banks,
seed supply centres, seed rearing units, lack of brood stock banks, field laboratories, diagnostic centres,
facilitation centres etc., facilities for processing and value addition all act as impediments to aquaculture
development in the State. A large number of fish/ shrimp farming units in Kerala are located in remote

258
areas with little road access and electrical connectivity. Inadequate infrastructure facilities make
intensification of farming systems difficult. In the absence of electrical connectivity, most farms do not
use aerators to enhance dissolved oxygen content of the rearing water. Thus, the farms have to restrict
to low stocking density there by resulting in low production.
Inadequate finance for aquaculture development: One of the principal reasons for the lukewarm
development of aquaculture sector in Kerala is inadequate capital infusion into the sector. Barring aside
a few, like units for farming of molluscs, aquaculture in general is capital intensive and is prone to high
level of risks. In view of these, financial institutions in the State are reluctant to extend capital support for
aquaculture ventures. As a result, entrepreneurs are finding it difficult to start new ventures.
Lack of support for creation of common facilities: Kuttanad, kole, pokkali and kaippad lands are perhaps
the most important areas for the development of aquaculture in Kerala. These areas in general are low
lying and lie adjacent to backwaters and rivers. In these areas strong common peripheral bunds are
required to prevent water incursion and to protect the crop. Construction of strong peripheral bunds
requires huge capital investment which is beyond the capacity of individuals.
Inadequate Insurance coverage for aqua farming: In view of the recurring viral diseases insurance
companies in general are not willing to extend financial coverage to aqua farmers in Kerala, as in other
parts of the country. This acts as a major obstacle in the development of aquaculture.
Lack of data base on aquaculture: A serious lacuna in the State, as in other parts of the country, is in
respect of availability of aquaculture data. For any business planning or growth analysis data on past and
present is a prerequisite. Unfortunately, authentic/organised data are not available on many aspects of
aquaculture in Kerala.

Post-harvest sector
The general hygiene and sanitary aspects of fish landing centres, harbours and fish markets in the State
need improvement to raise them to international standards. There is lack of programmes to sensitize the
stakeholders for maintaining cleanliness and hygiene in these facilities. There is a need to ensure
availability of safe and hygienic seafood. Provision of adequate infrastructure facilities is critical to marine
fisheries value chain, and also critical for many MCS functions.
Harbours and fish landing centres should act as centres of agglomeration for both post processing and
value addition. Based on a comprehensive reassessment of the requirements and ensuring minimal
impacts on the coastal ecosystem, additional facilities, including harbour-based fish dressing centres and
fish processing estates, are necessary. Presently, it is estimated that about 15% of the fish caught is lost
in post-harvest phase, which is a colossal waste of natural wealth that otherwise could have been put to
better use. The post-harvest losses through better on-board fish handling will lead to better quality and
prices, particularly for high value fishes and their products. More importantly, loss of valuable fish wealth
will be minimized so that more fish is available maintaining ecological balance. Mitigation measures to
reduce by-catch need to be promoted through relevant implements, gears and other management
measures.

4.10.4 Proposed approach to resilient rebuilding of the fisheries sector

The key development objective in the fisheries sector is to improve availability of fish by increasing fish
production and by reducing fish wastage together with enhanced employment and income generation for
socio- economic prosperity and nutritional security (see below figure). In this context, it is important to

259
improve fish production, productivity and profitability in the inland areas which offer high economic
opportunities and benefits as well as assist in stabilizing declining marine capture sector. The approach
also calls for the development of deep-sea fishing and sustainable Mari-culture activities. Finally, loss of
valuable fish wealth needs to be minimized so that more fish is available for maintaining the ecological
balance.

Figure 41: Approach to enhancing fish availability, affordability, and accessibility

Development of aquaculture on sustainable basis in the State would require interventions and support at
different levels. These include policies, research and farmers’ initiatives. Fish production can be increased
by adopting a three-pronged approach which involves improving the productivity of existing farm units,
extending farming operations to new areas, and adopting new and innovative farming technologies.
Increasing productivity and profitability in the inland water bodies which offer high economic
opportunities and benefits as well as assist in stabilizing declining marine capture sector and develop
sustainable Mari cultural activities as an alternative livelihood assumes great importance. The emphasis
will be on the development of fisheries sector with the scope of enhancing fish production together with
employment and income generation for socio- economic prosperity and nutritional security.
The Ecosystem Approach to Fisheries Management (EAFM) will be implemented with due consideration
to the well-being of all living and non-living constituents of the marine ecosystem and the social attributes
of stakeholders. In the same vein, participatory management or co-management in fisheries, which is
recognized globally as one of the successful management systems for multi-stakeholder, multi-species
and multi-fleet fisheries, will be promoted. Such a co-management system, which could include local,

260
regional, inter-state and national fisheries councils would also play a key role in resolving conflicts among
different groups of fishermen. The norms for introducing these management measures will be worked
out in consultation with the fisheries research institutions, local governments, fishers and their
associations and other concerned stakeholders in the sector.
The Government will introduce new scheme(s) for enhancing the skills and capabilities of the traditional
fishermen to undertake and popularize deep sea fishing. The scheme(s) will inter-alia consider
modernization of existing indigenous deep-sea fishing fleet, introduction of new indigenous deep sea
fishing vessels through fishermen cooperatives/self-help groups, on-board training and linkages to
markets and export. While introducing these mechanisms/schemes, steps will be taken to ensure that
such initiatives comply with the international regulations relating to fishing in the EEZ and beyond in the
high seas.
Utilization of deep sea resources in the EEZ will be considered not only in terms of resources available in
the EEZ, but also infrastructure, technical wherewithal for vessel construction, survey and certification,
human capacity development and a comprehensive and implementable set of rules and regulations; with
a strong Monitoring, Control and Surveillance (MCS) regime, availability of scientific and technical
information on commercial fisheries resources, and the best fishing methods with which to target them.
While designing the recovery plan for Kerala, the mission is to establish a three-phased approach of short,
medium- and long-term action plans. This approach will ensure continuous recovery and sustainable
development. The next table provides a comprehensive list of actions to be undertaken for achieving
these goals. Also, from a futuristic point of view we need studies to be undertaken for achieving green
fisheries which is in line with the Kerala fisheries policy of sustainable fisheries.
A detailed set of actions for addressing the identified challenges and charting a sustainable course
forward mare considered to build the fisheries sector back better and modernize it to meet the needs
of people and the economy. These are arranged in five key themes: (1) creating an enabling environment
for growth, (2) managing marine capture fisheries for long-term sustainability, (3) ensuring sustainable
inland capture fisheries, (4) supporting the development of an environmentally sensitive aquaculture
industry, and (5) optimizing the benefits of a productive fisheries sector – including the value chain – and
for social goals.
1. Creating an enabling environment for growth
 The current governance structure is fragmented. Better-defined roles for existing institutions could
improve management outcomes and investor confidence.
 Revitalization of the sector will require substantial financial investment for new production, structural
adjustment, and value-added activities. Strategic financial support in the form of grants, loans, and
guarantees is required, along with systems for efficient and transparent delivery. A State-level
Fisheries Infrastructure Development Fund (S-FDF) could make strategic public investments in
infrastructure required to modernize the sector, while crowding-in private-sector financing for
investments along the value chain. Investments would be market-driven, yet eligibility criteria would
help ensure that social goals are promoted.
 The sector needs investment in skills and training. This could be achieved through increased funding
for existing State educational institutions, coupled with funding through the FDFs to support new
partnerships with the private sector to ensure vocational readiness. This could also be pursued
through technology-driven edu-tech solutions that promote disruptive and scalable skills
development in countries that find it hard to mobilize global expertise due to conflict and safety
concerns.

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 With fish as an important local and global food, there is a need to strengthen food safety and sanitary
and phytosanitary (SPS) systems, and ensure compliance, to build Kerala's access to high-value
markets, and reduce the risks that currently discourages private- sector investment. Stronger Federal
oversight, and increased capacity in inspections, diagnostic laboratories, border-quarantine facilities,
and industry protocols, are necessary.

2. Ensuring productive and sustainable management of marine fisheries

 As in many other ocean-facing countries, improvements to productivity and sustainability of marine
capture fisheries will require an urgent reduction of overfishing. An effort reduction programme and
enforced licensing could cut fleet capacity and fishing effort and phase out certain types of vessels.
Restrictions on timing and areas of fishing could further protect key habitats and ensure stock
recovery. There are various technical approaches to designing such a programme, which would be
detailed in Fisheries Management Plans (FMPs), informed by a new research framework. The
reduction in overfishing could proceed in parallel with compensation for affected operators, or by
alternative livelihood programs to ameliorate the costs of adjustment.
 To better nurture fisheries revitalization, improved monitoring, control, and surveillance is essential,
so as to protect Kerala's fisheries both from unauthorized fishing activities. Better enforcement of
existing regulations is as important as introducing new ones. Monitoring, control, and surveillance in
fisheries are a multi-jurisdictional affair, and thus a unified cross-government plan of action that
clarifies responsibilities is an important step, including with federal agencies.

3. Ensuring the productive and sustainable management of inland capture fisheries

 A review of the incentives created by existing management schemes for inland capture fisheries is
needed. Many inland fisheries have low productivity and poor social and livelihood outcomes,
partially due to contracting arrangements between managers and resource users. Policy options for
management systems could be developed on a consultative basis as part of such a review.
 Improved ecosystem management would prevent further degradation of important freshwater
resources. Improving yields and livelihoods will require better data collection and research to inform
management of ecosystem trade-offs, and to identify and reduce sources of water pollution.

4. Supporting the development of an environmentally sensitive aquaculture industry

 Aquaculture faces risks that must be averted to encourage private sector investment and ensure that
inadvertent costs do not outweigh benefits of growth. A system of spatial planning could reduce risks.
Detailed mapping of where aquaculture development should be permitted would avoid
environmentally costly impacts on mangroves and water supplies and ensure optimal use of existing
infrastructure such as roads and export facilities.
 The quarantine and certification system also need strengthening to reduce biosecurity hazards. This
would require upgrades to aquatic animal health laboratories, stronger certification measures, and
better inspection facilities at ports of entry. Institutional changes, such as nominating and
empowering a focal-point biosecurity institution at the Federal level, might also help. Greater
engagement with international organizations that deal with aquaculture biosecurity and food safety
risks is also recommended.

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 Deeper extension service would foster development of the industry. Aquaculture extension in Kerala
primarily takes place at the State and Territorial level, through largely unlinked institutions.
Institutional coordination, upgraded curricula, and learning from other countries’ successes could
increase productivity. This should be supported through increased research, undertaken jointly by the
public and private sectors.

5. Optimizing the benefits of a productive fisheries sector to advance social goals

 Investments and improvements in fisheries should benefit both large export-oriented firms and small-
scale operators. There is also a need to ensure that polices disproportionately benefit poorer
households and women. This could be achieved by encouraging FDF investments towards activities
that employ or are led by women, which tend to be in post-harvest phase. Extension activities and
financial support oriented towards small-scale homestead aquaculture could also help.

Table 45: Summary Framework of Specific Development Objectives (SDOs) and Results Areas for
Greater Resilience and Sustainability of Fisheries Sector Revitalization

Action plan Specific Development Objectives (SDOs) and Results Areas

element

SDO 1: Enact policies and programs that deliver structural funding, innovation, capacity building, and other
changes to attract investment, support trade, and improve the management of fisheries resources.

Results Areas:

1.1 Reformed governance for greater oversight and coordination

1. Enabling
1.2 Provision of finance for structural investments
environment
1.3 Improve labour force skills and extension via education, skilling

1.4 Improved SPS measures and enforcement to protect consumers and align with international standards to
facilitate trade
1.5 Innovative mechanisms to enable sustainable development of the sector (i.e. spatial planning, leasing of water
bodies for sustainable aquaculture)

SDO 2: Ensure that marine fishing activities are environmentally sustainable and managed in a way that will
achieve equitable economic and social benefits.

Result Areas:
2.
Sustainable
2.1 Effective management of sustainable marine fisheries
Marine
capture
2.2 A well-regulated and compliant fishing sector
fisheries

2.3 A healthy and productive marine ecosystem

2.4 Evidence-based fisheries management enabled through good science and information

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 SDO 3: Ensure that inland fishing activities are environmentally sustainable and managed in a way that will
achieve equitable economic and social benefits
3.
Sustainable
Result Areas:
Inland
capture
3.1 Effective and equitable management of sustainable inland fisheries
fisheries

3.2 Effective freshwater ecosystem management

SDO 4: Ensure that aquaculture is managed in a way that will enable Kerala to satisfy local demand, grow
exports, provide an alternative to wild capture, and contribute to jobs, food security and the empowerment of
women

Result Areas:
4. Climate-
4.1 Effective planning and management of aquaculture
Smart
Aquaculture
4.2 Effective aquatic animal health planning and management

4.3 Expanded and improved aquaculture extension and training

4.4 Expanded and improved aquaculture research and development aligned with industry needs and government
objectives

SDO 5: Optimize the economic and social benefits generated by a more resilient, productive and sustainable
fisheries sector

Results Areas:

5.1 Improved nutrition and food security for all

5.
Optimizing
benefits5.2 Greater attention to gender issues and progress towards gender equality

5.3 Strengthened productivity of the sector to drive competitiveness

5.4 Improved infrastructure and fisheries value chains (incl. equipment, technology, marketing) enabling primary and
ancillary job creation and economic growth
5.5 Improved safety at sea for fisherfolk

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 4.10.5 Specific Interventions
Table 46: Fisheries Actions and Results Framework

0-6 0-18 18 months

S.No Activities Expected outcomes
months months & beyond

Policy/regulatory

Untapped deep sea fish resource can

Deep sea fishing
1 X be sustainably tapped for increasing
policy
fish based products

Fishery management rights to be

Public water bodies
vested with fisheries department
2 including reservoirs X
keeping the ownership of water body
utilization
intact

Quality of fish/ shrimp seed ensured.

Policy for seed
certification and Better survival on farming which
accreditation of seed increases the profitability of farming
3 X
production centres, operations
feed mills
standardization
Incidence of disease outbreak
minimized

Integrated aqua- agri- animal rearing

Strengthen policy systems help produce different crops
frame work to from the same area
4 X
promote integrated
farming systems Increases productivity, reduces crop
failure and increases profitability

Institutional

Better delivery of services to

Modernisation of
fishermen and fish farmers
Matsyabhavans with
Services of Department, Matsyafed,
5 e-governance, man X
ADAK, FIRMA and KFWFB under a
power allocation,
common roof at local government
etc.
levels ensured

265
 0-6 0-18 18 months
S.No Activities Expected outcomes
months months & beyond

The centre will provide Information &

Communication Technology (ICT)-
enabled Aquaculture Support Service
One stop to the Fish Farmers
6 X
aquaculture centres. Disseminate newer technologies and
innovations
Facilitate their wider adoption for the
sector’s growth

Technology

Demarcation of marine areas for

Marine spatial multiple users of the ocean
7 X
planning Help avoid conflict of interest in use of
resources

Deep Sea vessels with increased

capacity for storage and processing
helps in
a) Capture of untapped fish resource
8 Deep sea fishing X
b) processing at sea increases market
value
c) Value addition and income
generation

Diverification from capture fisheries to

Mariculture
culture fisheries in the sea
9 including seaweed X
Alternate livelihood for fishermen
farming
More products from limited resource

Seed production of
Right Quality, Quantity at right time of
marine fin fishes,
10 X seed production will increase
shell fish and
aquaculture calender planning
indigenous species

Builds confidence among fishermen in

undertaking multiday fishing
Advanced control
operations beyond conventional
room for online
fishing seas.
tracking,
11 X Traceability of produce and products
communication
possible.
mechanism and
Mechanism for effective
rescue
communication during disaster and
warnings

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 0-6 0-18 18 months
S.No Activities Expected outcomes
months months & beyond

Investment

Aquaculture Proper survey and zonation involves

zonation - Species site specific, species specific, time
12 X
specific and region specific inputs resulting in higher fish
specific production in a sustainable manner

More than 15000 hectares of brackish

Inland aquaculture
water, reservoir, other water bodies
13 including cage X
can be utilised for growing fish in
farming
cages

Fish multiplication centres for marine

Fish multiplication and fresh water fishes have to be
14 X
centres established for providing good quality
advanced fingerling to the benefactors

Detection of disease free seed and

Disease surveillance
juveniles.
15 and control X
Provides facilities for early detection
laboratories
of fish diseases and their cure.

Conservation and development of

16 Artificial reefs X sustainable heathy ecosytem for
marine resources.

International standard boat building

Construction of boat yards will act as centres for building,
17 X
building yards repair & maintenance and certification
of boats.

Integrated development of Harbours,

Fish landing centres and fish markets
Modernization of results in establishing Value chain.
Harbours, Fish Reduction of fish wastage
18 X
landing centres and Increase in fish availability
fish markets. Ensures supply of good quality fish to
consumers
Increase in income to fishermen.

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4.10.6 Technical Studies and Assessments

Table 47: Fisheries List of Studies

0-6 0-18 18 months

S.No Studies
months months & beyond
Policy / Regulatory
Study for Marine spatial planning (MSP) to bring together
multiple users of the ocean – including energy, industry,
government, conservation and recreation to make informed
and coordinated decisions about how to use marine resources
1 X
sustainably. Maps may also be prepared to create a more
comprehensive picture of the marine area– identifying where
and how the ocean area is being used and what natural
resources and habitat exist, similar to land-use planning.
Mari and Aqua Zonation: The data on water bodies available for
fish farming need to be ascertained afresh and must be
earmarked for fish farming purpose.
2 X
A detailed survey aided by remote sensing techniques is
required for the delineation of areas suitable for various
systems of fish culture in a sustainable manner.
Investments Planning
Ecosystem-based fisheries management (EBFM) is a holistic way
of managing fisheries and marine resources by taking into
account the entire ecosystem of the species being managed.
The goal of ecosystem-based management is to maintain
3 X
ecosystems in a healthy, productive, and resilient condition so
they can provide the services humans want and need. The EBFM
approach also can be applied in the management of protected
and other trust marine species.
Support Department of Fisheries and Matsyafed, the Kerala
State Co-operative Federation for Fisheries Development Ltd.,
the Apex Federation of 654 Primary Fisherman Co-operative
Societies spread over 10 districts of Kerala in three key
Feasibility Studies: (a) feasibility study to assess adoption of
innovative extruder based technology to locally process fish
4 waste into feed and nourishing food, rather than rely on X
expensive imports into Kerala; (b) feasibility study to develop
nutrition-sensitive hatchery and R&D Centre of Excellence for
provision of fish fry or “seed” to poor fish farmers, ensuring
State-wide self-sufficiency (currently lacking); and (c) feasibility
study to develop Kerala-cantered ornamental fish trade, a $1.3B
annual market for India currently untapped.

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4.11 Livelihoods

4.11.1 Introduction
Tourism and traditional industries, Micro, Small, Medium Enterprises (MSMEs), rural/Kudumbasree
enterprises, agriculture and animal husbandry are key livelihood sectors employing a large proportion of
Kerala's population. Considering the diversity of issues related to the livelihood options based on
agriculture and allied sectors from that of the livelihood options in Tourism and Industries
(microenterprises in particular), this paper attempts to address these two categories as two different
sections. Discussions on livelihood development cannot be comprehensive without considering the
specific issues of the most marginalized groups in the society, covering SC, ST and fisherfolk.
As per the Department of Labour, approximately 12.8 lakh of the 67.11 lakh workers pertaining to the
sectors under its jurisdiction were affected by floods, leading to a loss of 269.08 lakh of person-days.
Migrant workers from other states constitute 25% of the total workforce of the State. The wage loss of
the migrant workers was estimated for 13 days, and the total wage loss worked out to be Rs. 2032.72
crore and 296.01 person-days. The plantation sector, one of the most important sectors from the
employment and livelihood point of view, had 69% of its workforce affected by floods, resulting in loss of
245749 person-days. The State has its workforce employed in the organized and unorganized sectors as
casual workers, regular workers and self-employed workers. The National Commission for Enterprises in
the unorganized sector estimated that 87% of the workers in Kerala are informally employed without
social security provided by their employers. The floods had a major impact on these workers and the
recovery needs to be cognizant of their vulnerability.
Tourism accounts for 10% of the Kerala’s gross domestic product (GDP)134, with an estimated135 share of
23.5% of the total employment in the State between 2009 and 2012. The tourism sector in Kerala directly
employs 1.4 million people in the State and welcomed 15 million domestic and foreign tourists in 2017
alone. Kerala also has the highest number of Non-Resident Indian (NRI) visits in the country.
As the first Indian state to declare tourism as an industry and the first to trademark its tourism brand
“Kerala – God’s Own Country”, Kerala has the highest136 state expenditure on tourism in India. In 2017
alone, the state revenue (direct and indirect) from this sector was Rs. 33,390 crore137. The diverse tourism
destinations in Kerala include138 six broad categories: (1) heritage/cultural/religious sites & events (2)
backwaters (3) beaches (4) hill stations (5) eco-tourism sites like wild life sanctuaries and (6)
Ayurveda/wellness-related activities.
Kerala’s highly skilled labour force and the relatively high levels of consumption are the key contributing
factors for the industrial growth in the State. Per capita consumption expenditure in rural Kerala is twice
that of rural India and in urban Kerala is 1.3 times that of urban India. 15,535 new MSME units were
started in Kerala in 2016-17 with a total investment of Rs. 1387.12 crore and generating employment for
57,445 persons. Ernakulam district occupies the top position with 2,267 new units and 8,981 employees

134
Government of Kerala (2017), Economic Review 2016
135
Ibid.
136
1.27 % as against the national average of 0.49 %. Planning Commission (2014) State-wise/Sector-wise Annual
Plan, 12-13
137
Kerala Tourism (2017) Kerala Tourism Statistics - 2017 Highlights
138
Ministry of Tourism (2003) 20 Year Perspective Plan for Kerala Tourism (2002-03 TO 2021-22)

269
in the MSME sector.139 MSMEs play a crucial role in job creation especially amongst youth, women and
marginalized communities.
Kerala’s long-standing and renowned Kudumbashree programme has been integral in ensuring inclusive
and empowering growth within the MSME sector. Initiated in 1998 as a part of the People’s Plan Campaign
to promote local self-governance, the program now boasts of over 30,000 Kudumbashree women
enterprises running successfully in various production, service and trade sectors.
Handloom and Coir sector is a major traditional industry in Kerala. provides direct and indirect
employment to 175,000 households. Participation of women, landless and marginalized communities in
the handloom sub-sector is high. Kerala’s handloom industry carries a vital role in the State’s economy
because of its employment generation potential, both upstream and downstream, and, second to the coir
sector, in providing employment among the traditional industries of the State. The handloom and coir
industry in the state is concentrated in Thiruvananthapuram, Kannur, Kozhikode, Palakkad, Ernakulam,
Thrissur, Kollam and Kasargode Districts.140

4.11.2 Impact of 2018 Floods

According to the PDNA, the floods had a substantial adverse impact on the employment and livelihood
sector of the State, which resulted in damages to physical infrastructure as well as monetary loss for the
affected people by way of loss of wages, loss of production and income, and cost involved in managing
the risk (termed as loss). It was estimated that livelihoods based on agricultural and allied sectors
sustained a loss (other than the physical damages and loss already considered in the concerned sector) of
1097.15 person-days of employment, affecting about 72.42 lakh workers, including migrant labours,
resulting in wage loss of Rs. 7300.99 crores. Similarly, livelihoods based on industry related sectors,
covering MSME, traditional industries, tourism and rural/Kudumbasree enterprises, added up to another
Rs. 2188.37 crores of wage loss, in addition to damage or destruction of physical infrastructure
aggregating to Rs. 878.42 crores. Thus, the total impact affected the Employment and Livelihood sector
of the State translates on monitory terms to Rs. 10,367.79 crores.
The PDNA pointed out a number of initiatives that could be considered to boost post-floods livelihoods,
among them:
 Since the SCs depend on agriculture as their main livelihood, both loss of jobs and tools could be
compensated by increasing the work-days under the Mahatma Gandhi National Rural Employment
Guarantee Scheme (MNREGS) for men and women.
 Enabling market expansion for farmers, enhancing their capacity to develop organic farming and
deployment of new technology.
 Use Forest Right Act to implement land distribution programme providing land to landless STs/ SCs
Within tourism, the floods caused substantial damages to public, private and community-owned
infrastructure in most districts, estimated at a total of Rs. 508.8 crore. This includes damages to hotels,
jetties, navigation canals, parks, restaurants, sanctuaries and other tourist infrastructural assets.
Alappuzha (Rs. 119.8 crore), Idukki (Rs. 96.9 crore) and Ernakulam (Rs. 88.4 crore) were the most affected

139
http://spb.kerala.gov.in/ER2017/web_e/ch313.php?id=31&ch=313
140

https://www.researchgate.net/publication/281748233_HANDLOOM_INDUSTRY_IN_KERALA_A_STUDY_OF_THE_PR
OBLEMS_AND_CHALLENGES

270
districts. The flow of tourism was totally disrupted for 15 days and the infrastructure loss of tourism sector
alone accounts for 57.9% (Rs. 508.80 crores) of the total. The losses in terms of income foregone was
significantly higher. As per estimates, income foregone due to cancellations and reduced tourist footfalls
amounted to Rs. 1,701 crore, with 19% of the tourism work-force directly impacted.
The floods impacted eco-tourism sites, like the Periyar National Park in Thekkady, and cultural heritage
sites like the ongoing Muziris Heritage Project including disrupted access and damage to infrastructure.
The backwaters, which draw141 the second largest share of tourists after cultural/heritage and religious
sites, also suffered extensive damages to infrastructure like houseboats, boat jetties and navigation
canals. In addition to the immediate stalling of tourist activities, the peak season of October to March also
got impacted. Kerala sees a huge demand for meetings, incentives, conventions and exhibitions (MICE)
activities during this period, but given that these events have a longer booking window, the hotels
witnessed largescale cancellations.
The industrial sector was significantly impacted due to the floods. An estimated 4000 nano, micro and
small units in subsectors such as plastic, building materials, garments, food, rubber, light engineering,
paper, wood and spices were affected, impacting 20,964 workers. The nature of impact included damage
to infrastructure, equipment, machinery, raw material stocks, semi-finished and finished goods, loss in
revenues/business opportunities and working capital losses. Interactions with entrepreneurs and
Kudumbashree-supported units revealed significant disruption to supply chains, indicating higher
production / business costs in the short term.
In the handloom and coir subsectors, loss of houses, work sheds, equipment, raw materials, products,
coupled with a dip in State tourist economy affected the lives of thousands of urban and rural households
engaged in these activities. About 782 registered weavers and artisans engaged in handloom/coir
activities lost their work sheds, raw materials, finished product stock, equipment, and tools.
Immediate Recovery Efforts – The Government formulated a new financial aid scheme, the Resurgent
Kerala Loan Scheme (RKLS), with the aim of giving a helping hand to regain the lives and livelihood and to
alleviate the problems caused by impact of the floods. Affected families may avail bank loan of up to Rs.
one lakh per family, without collateral, for the purchase of domestic appliances and other purposes.
Interest on the loan will be paid by the government. Total of 1,43,924 beneficiaries have applied for loans
worth Rs. 1,149 crore through 23,758 Ayalkoottams under this loan scheme. Out of this, 1,27,237
beneficiaries in 17,891 Ayalkoottams have been provided loan. Kudumbashree initiated another
innovative programme to augment the skill of flood-affected people to suit the job market available in the
flood-hit areas. ARISE (Acquiring Resilience and Identity through Sustainable Employment) aims to provide
skill training to 50,000 candidates in 10 selected areas. It includes housekeeping, plumbing, electronic
repairs, electrical works, day-care, sales, data entry and laundry and ironing. A total of 32,132 people has
been registered for this project. Kudumbashree has formed 246 construction groups comprising of
women trained for various trades in the construction industry for taking up any construction related
activities. The Kudumbashree members who were affected by the disaster have been offered more than
300 products from 15 companies at a discounted rate. Under the MNREGS, as of March 2019, wage
employment has been provided to 14.72 lakh households with a total of 16.96 lakh individuals, out of
which 4.83 lakh families were newly employed as per the data collected on 16th August 2018. As a result,
a total of more than 7.5 crore (7,63,37,310) persondays were generated after 16th August 2018 till date,
and 82,605 families were issued new job cards after the floods. An amount of Rs. 700.14 crore has been
disbursed to the beneficiaries identified as unskilled wages by the Central Government through Direct
Benefit Transfer. Projects worth Rs. 86 crore are currently underway for restoration and reconstruction

141
Tourist Statistics, Department of Tourism, Government of Kerala

271
of flood damaged infrastructure. The Department of Industries and Commerce has formulated a new
scheme ‘Ujjeevani’ aiming to provide bank loans to rejuvenate small, medium enterprises, commercial
establishments and shops affected in the floods. The scheme envisages to provide margin money up to
Rs. 2,00,000 for the loans taken. KSIDC has introduced a new loan scheme to help the flood victims, which
intends to assist entrepreneurs with short-term loans up to Rs. 3 crore at 9% interest rate.

4.11.3 Major legacy and current issues

The key issues under consideration are highlighted below:
1. Tourism
Growth in foreign tourist arrivals (FTAs) in Kerala have slowed down over the recent years, from 11%
between 2007 and 2012, to 5% in 2017142. Although 2018 witnessed a healthy growth in the first few
months, however, the trend was broken because of the outbreak of Nipah virus in May and June, followed
by the floods later in July and August. The GoK has stated its intention to double FTAs by the end of 2020143
and has embarked on various campaigns in core foreign markets including UK, USA, Germany, France and
the Middle East. Given this context, the following issues are under consideration for sustainable growth
of the sector from the perspective of livelihoods:
a. Disaster preparedness: Rapid growth of Kerala’s tourism sector over the past 20 years has led to rapid
(and sometimes discriminate and illegal144) mushrooming of hotels, resorts and other buildings in key
tourist spots with implications on ecologically-sensitive zones. There are instances of resorts located in
areas classified as ‘high hazard’ or ‘very high hazard’ by the State Disaster Management Authority
(SDMA). Post floods, GoK rolled out a 12-point action plan to prevent losses in the forthcoming peak
tourist season. This plan includes restoration of road corridors and infrastructure and initiation of
several marketing strategies to attract tourists, including digital campaigns, familiarization tours for
travel agents/media-persons, and campaigning for events like the champions league boat race and
Kochi-Muziris Biennale. It is imperative that GoK’s recovery plan is informed by disaster and climate
risks, both pre-existing and those emerging from the impact of the floods. The experience of the floods
necessitates a review and update of GoK’s Responsible Tourism (RT) policy to address disaster and
climate risks, including, but not limited to responsible site selection and design of hotel buildings and
other infrastructure, disaster management planning at cultural, heritage and religious sites, enhanced
capacities of tourism sector employees for disaster response, business continuity planning etc. This is
important to minimize disruption to tourism- supported livelihoods in the State after disaster events.
b. Community/Producer share in tourist spend: Along with the rapid growth in tourism revenues, the GoK
has been endeavoring to increase the share of community and producers in tourist revenues. While
notable efforts have been made in this area, field observations indicate the need for a scale-up of these
efforts. The GoK’s RT initiative, launched in 2007 in selected districts, aimed to increase the share of
rural households in tourist spend through various measures, including facilitating buyer-seller linkages
between hotel industry and local farmer communities, facilitating tie ups between hotels and local
handicraft/souvenir production units, promotion of experiential tourism concepts centered around

142
https://www.keralatourism.org/tourismstatistics/tourist_statistics_201720180314122614.pdf
143
https://www.moneycontrol.com/news/india/kerala-eyes-over-20-lakh-foreign-tourist-arrivals-by-2020-end-
3452471.html
144
https://www.firstpost.com/india/kerala-floods-environmentalists-blame-destruction-of-eco-sensitive-zones-
want- controversial-amendment-to-wetland-act-scrapped-4949381.html

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 local cuisine, art and culture, and so on. GoK’s RT initiatives have shown encouraging results in
Kumarakom. This needs to be scaled up across the State, along with improving the participation of rural
communities in tourism, improving awareness among rural communities about potential
opportunities, strengthening basic skills and knowledge, training the trainers, providing support for
entrepreneurs, and others. An assessment145 by JNU indicated gaps in these areas.
c. Waste management: The State is plagued by the unseemly sight of piled up garbage in prominent
tourist spots including backwaters and seashores. During the floods, heaps of garbage were deposited
back on the riverbanks. Disposal of these wastes was highly problematic. In general, waste
management needs to be improved in order to prevent further degradation of the environment and
reverse the negative impact on eco-tourism.
d. Quality control in tourism services: Quality of services has been identified as an area of concern by
tourism officials. At a time when the growth in foreign tourist arrivals slow down146, this has serious
implications. An added factor is the emergence of Colombo as a competing tourist destination. GoK
has initiated a set of measures to rate/categorize services (such as houseboats), check unseemly
practices such as overcharging, and introduce waste collection mechanisms to ensure hygiene.
e. Infrastructure: Finally, infrastructural issues significantly affect the growth potential of the tourism
sector. Uncontrolled construction, poor road infrastructure and frequent traffic jams, restrict
movement and cause hardship tourists. The State also witnesses frequent agitations hamper free
movement.

2. Microenterprises
GoK's impetus in microenterprise development is driven primarily through the Kudumbashree initiative.
Kudumbashree is a community organization of more than 4.5 million plus women members organized in
over 277,000 Self Help Groups (called Neighbourhood Groups (NHGs). Kudumbashree supports over
30,000 microenterprises147 in diverse fields such as food processing, handicrafts, cosmetics and so on.
While Kudumbashree has made substantial contributions to strengthening resilience of Kerala's
marginalized women, going forward, the following issues merit consideration for enhanced economic
resilience of Kudumbashree enterprises and members.
a. Need for financial management skills - While Kudumbashree provides a range of support services148 for
its entrepreneur members, studies149 indicate that many Kudumbashree entrepreneurs face challenges
in running their businesses due to difficulties in managing scarce capital, diversion of capital for non-
economic/domestic purposes and inefficient financial management. Kudumbashree entrepreneurs
also require skill building in other functional skills such as production, inventory management,
marketing etc.
b. Need for mentorship - Majority of the Kudumbashree enterprises are run by poor women with little
business or marketing acumen. Kudumbashree entrepreneurs require mentorship at strategic points

145
http://www.krishisanskriti.org/vol_image/04Jul201504074359%20%20%20%20%20%20%20%20%20Philip%20Va
rghese%20%20%20%20%20%20%20%20%20%20%20%20612-616.pdf
146
http://www.newindianexpress.com/states/kerala/2018/jun/08/a-plethora-of-problems-plague-keralas-tourism-
sector-1825161.html
147
https://rural.nic.in/sites/default/files/Kerala%20-%20PRC%202017%20Meeting.pdf
148
http://thekudumbashreestory.info/index.php/programmes/economic-empowerment/enterprises/enterprise-
promotion
149
http://www.innovativejournal.in/index.php/jbme/article/download/1687/pdf_76/

273
 in their entrepreneurial journey, including in areas such as making business plans,
investments/business expansion, diversification, new product/service development, and so on.
c. Market development: Kudumbashree enterprises currently get a good marketing platform through the
monthly fairs/markets. In order for entrepreneurs to move beyond local markets, they would require
support across the entire value chain, including in branding, business development, quality control,
market info, and so on.

3. Medium and Large Industries

Although manufacturing contributed only 7.5% to Kerala’s GSDP, this sector employed approximately
14.0% of the State’s total workforce in 2011-12. In comparison, the manufacturing sector’s shares in GDP
and employment were 15.8% and 13.0% respectively at the national level. This points to some degree of
lop-sidedness in the structure of Kerala’s manufacturing sector, especially the inability of firms to grow in
size and/or specialisation.
Medium and large industries in Kerala face some major issues. Studies have shown that the roots of Kerala’s
industrial backwardness lie in the nature of industrial investments from the 1930s. These investments,
mostly into chemicals-producing industrial units, were built on the short-term advantage of cheap
hydroelectricity and locally available raw material. However, the growth of chemical industry in Kerala was
constrained by the shortage of electricity from as early as the 1950s, as well as by problems of
environmental pollution and the high cost of land. All these factors have led to a small and less-diversified
industrial sector in Kerala. The nature of federal financial relations in India allowed only limited degrees of
freedom for the State Governments with respect to intervention in industrial development.
Lack of availability of land for large manufacturing projects is a key constraint for industrial growth of
Kerala. The quantity and quality of physical infrastructure in Kerala has also been as an impediment to
industrial growth in the State. According to a recent assessment by the GoI’s Department for Promotion
of Industry and Internal Trade (DIPP), Kerala was ranked 20 (below other Southern States) out of 29 States
in terms of Ease of Doing Business. There are frequent occurrences of general strikes or harthals organized
by political parties.150. These strikes and harthals result in the loss of a substantial number of working days,
causing adverse impacts on the growth of industry and tourism in Kerala.

4. Livelihood options for Marginalized Groups

There are a number of social security schemes and programmes envisioned in past years for improving the
quality of life of the SC and ST population. However, their effectiveness is questionable. There is need to
evaluate the suitability and implementation effectiveness of these schemes and incorporate corrective
measures. The share of Kerala in the total export of marine products from India is falling, in terms of
quantity and value. Inland fish production is an area which holds promise for future in Kerala, however, the
same is yet to take off in a big way. This is further discussed in the Fisheries section.

150
There are no official estimates of the number of general strikes. But according to an unofficial source, as many as
363 harthals were called either for the entire state or in specific regions during the seven-year period 2005
through 2012. See Henderson, Tony, Pressenza, http://www.pressenza.com/2012/09/india-363-hartals-in-7-
years-in-kerala/ (accessed on November 22, 2016). Given the fact that a significant number of mandays are lost
due to these harthals, it is high time that the Labour Bureau start documenting it.

274
Considering the fact that all these three sectors taken together adds up to less than 10 lakh families, it is
possible to ensure a secure livelihood and social security cover for all these families. However, this would
require a focused and committed action programme involving:
 Detailed demographic profile study of these families, filtering out the educated and employable,
members requiring employment training and skilling and the families requiring partial or full social
security /palliative care. This may be done through an IT enabled system ensuring fast data collection
and processing as well as development of personal profiles for future traceability and follow up.
 Setting up a socially committed and motivated mission mode intervention for ensuring appropriate
employment for all the educated and employable persons and providing training and skilling of based
on aptitude for all those who aspire the same.
 Existing institutions should add modules on life-skill training with a focus on youth and vulnerable
women, as well as for expansion of skills for currently employed/employable, giving specific focus on
these marginalized segments of population. Existing material on industrial training should be upgraded
to create skills to contribute to a green economy.
 Students to be ensured special skilling to face challenges of the new world, enabling them to become
confident to merge with the main stream. Such trainings may be carried out in the public institutions
(by ensuring adequate reservations) for doing away with inhibitions of the participants and
mismanagement/exploitation in the implementation system. This may be made part of the co-
curricular activities in all public schools.
 Integration of existing schemes and devise new schemes to bridge the gaps and putting in place an
effective implementation system for ensuring a universal income scheme. Availing the social security
cover may be made simple using modern technology tools and establishing online single window
portals with accountability, traceability and transparency. This may also include establishing a single
window Facilitation Centre in every Local Body for dissemination of information on the various
schemes, follow up of all applications, ensuring effective delivery of the assistance and periodic
monitoring of the results.

4.11.4 Proposed Approach to resilient rebuilding

To support and mitigate the losses and damage due to floods in employment and livelihood sector, a
comprehensive action plan is needed. In the context of extensive loss of livelihoods in the State, the
approach would primarily focus on restoring, promoting and developing the lost livelihoods and ensuring
employment of the most vulnerable and marginalized communities and sections. The key livelihood/
employment categories considered in resilient rebuilding are:
 Farm livelihoods
 Off-farm livelihoods (livestock, poultry, fisheries etc)
 Non-farm livelihoods (Manufacturing, Trading and Service enterprises, including tourism, MSME,
Kudumbashree etc)
 Informal/ unorganized sector workers, wage labour
 Skilled labour
Among the above categories, the farm and off-farm livelihoods are part of the agriculture and allied
sectors and fisheries; and therefore, not separately addressed under the livelihood plans. While designing
the recovery plan for Kerala, the mission is to establish a three-phased approach, wherein immediate

275
actions are carried out first, followed by medium term and long-term action plans. This approach will
ensure continuous recovery and sustainable development over a five-year period. The recovery vision of
Build Back Better needs to be rooted in environmental sustainability, cost effective technologies, green
job creation, skill development, climate resilient livelihoods via decentralized planning and social cum
gender inclusion for Nava Keralam.
The immediate short-term measures for the recovery would be aimed at mitigating the losses suffered by
the most vulnerable segments such as MGNREGS job card holders, SC/ST, fisherfolk and disabled, informal
workers, petty traders, women JLGs & micro-entrepreneurs etc. Assisting them via providing additional
paid work days, grants, subsidies and loans (with interest subvention) such that they recoup the loss to
their assets, capital and incomes is a key element in restoring their livelihoods. Continuing providing
additional wage employment to address 2.05 lakh MGNREGS job card holders would be a key part of this
initiative. These can be linked with infrastructure restoration, water and land resource management. Self-
employed informal sector personnel, Joint liability groups and micro-entrepreneurs, vulnerable to post-
flood scenarios would also be given special compensation packages, which could be a combination of
grants and low-interest loans. Capital recovery/subsidy and loans for income losses would be undertaken
to aid sections of workers such as artisanal households and other such sectors. Policy level interventions
that facilitate the effective functioning of livelihood ventures, enterprises and placements would also be
part of the short-term measures.
In the medium term, the focus would be on strengthening livelihoods, self-employment avenues and
skilling initiatives. This would involve new programmes to support vulnerable groups and communities to
upgrade their skills, start self-employment ventures (nano and microenterprises, especially in trading and
services sector), and bridge the weaknesses in their functioning via institutional and handholding support.
The medium-term interventions would be area and sector specific.
The long-term measures will involve disaster, climate and livelihood governance through active
participation of stakeholders at the grassroots level. Livelihood action planning at the grassroots is
envisaged by effectively integrating all the available resources and matching them to the most vulnerable,
after taking into consideration their skills and capabilities. Such livelihood action plans would be able to
converge the possibilities of MGNREGS, Kudumbashree and sectoral schemes. Besides, long term
initiatives would also include creating institutional mechanisms for building value chains, forward &
backward linkages and systems for livelihood projects, cooperatives, producer companies, traditional
industries (such as handloom, khadi and coir). Product innovation, market development and skill
development need to be carried out in the longer term to strengthen livelihoods sustainability. An
estimated total of Rs. 2213.41 crore, Rs. 1311.25 crore and Rs. 371 crore will be required for the recovery
needs in short term, medium term and long term respectively. Overall, the total recovery needs for the
sector is estimated to be Rs. 3895.66 crore.
There is the potential to establish a Section 8 Company floated by Kudumbashree. This would be a market-
facing arm – led by a professional which will be responsible for the marketing of women’s enterprise
products, leveraging technology, enabling access to commercial finance, etc. similar to the work that
MoRD has already done and/or establishing a women’s bank (owned and managed by Kudumbashree
members).
Within tourism, a two-pronged approach is proposed, focused on (a) reconceptualizing the 'Responsible
Tourism' policy framework for disaster preparedness (b) Enhancing community share in tourism spend for
economic resilience. (see figure below).

276
 Figure 42: Two-pronged approach for Tourism Sector

1. Reconceptualizing 'Responsible Tourism' policy

framework for disaster preparedness
 Disaster management planning for key cultural, religious sites
 Business continuity planning
 Revision of accreditation criteria of tourist enterprises
 Risk informed site selection of hotels, resorts, other buildings
 Improved enforcement of environmental norms
 Crowd-sourced methods to track illegal constructions
 Capacity building of tourism sector employees

2. Enhancing community share in tourism revenue

for economic resilience
 Productive alliances between tourist enterprises and
community microenterprises / groups
 Creation of marketing spaces for local handicraft units in
tourist enterprises
 Promotion of experiential tourism and thematic tourism
concepts along lines of Kumarakom experience
 Skill and awareness building among rural communities

4.11.5 Specific Interventions

In line with the proposed approach, the following time-bound interventions/activities have been identified:

Table 48: Livelihoods Actions and Results Framework

0-6 0-18 18 months

Activities Expected Outcomes
months months & beyond

Policy / Regulatory

Policy framework developed for

Policies for leased land leased land farming that would
cultivation that addresses X
help the farmers on leased land
aspects such as rehabilitation, be resilient to future disasters; as
issues of land ownership, also address various challenges
leased land regulations, that they currently encounter in
decent wages and insurance. enhancing their farm-based
livelihoods.

277
 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond

Development of Livelihood
X
Action Plan (LAP) at
Panchayath levels
Institute a system for The LAP leverages and converges
developing robust LAP at the all possible resources available
level of local bodies. The LAP at the local body across various
would have Kudumbashree programmes, schemes agencies
CDS Action Plan, MNREGS and and sectors. The LAP matches
other sub-sector plans the plans to the neediest of the
integrated into it and would X
community.
also be based on the needs
and capabilities of the
vulnerable sections of the
community.

Revisit GoK's 'Responsible - Disaster management

tourism' policy framework to planning undertaken for
X
incorporate disaster and cultural, heritage and
climate risks. religious sites
- Business continuity plans
developed for state-owned
institutions
- - Revised accreditation
criteria for tourist
enterprises that includes
disaster resilience, including
disincentives for further risk-
creation by tourist
enterprises
- Risk-informed site- selection
and design of hotel buildings
and other infrastructure,
especially in newly emerging
landslide- prone areas
- - Crowd- sourced
website/app to track illegal
constructions launched

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 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond

Revisit policy framework for

microenterprises to include:
- Making available more
marketing spaces
- Productive alliances with
national/global retailers,
exporters and other
institutions Comprehensive enabling
- Better financing environment for micro-
avenues enterprises
- Leveraging government
X
schemes for buy-back
- Strengthened supply chain
linkages with local tourism
industry
- Improved adoption of
modern technology
- Improved compliance to
global standards

Institutional Implementation

Address the loss of livelihoods Lost livelihood assets of the

of the most vulnerable most vulnerable communities
communities such as SC/ST, are fully restored by way of
fisher-folk and disabled by X grants.
restoring their livelihood
assets via grants after
assessment and verification

Enhance income security and

address the loss of
employment opportunities in
the aftermath of floods by X
continuing to provide
additional workdays and job
cards to wage labourers under
Employment Guarantee
Schemes.
Provision of an additional 50
work days under MGNREGS to X Rural and urban poor receive an
be extended for FY 2019-20 as additional 50 days of paid wage

279
 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond
well. The guidelines under labour under MGNREGS &
Ayyankali EGS to be modified Ayyankali EGS.
to provide urban poor with
additional paid work days of
50 days for the FY 2018-19.

Address the loss of livelihoods

suffered by workers and self-
X
employed in the informal
sectors through financial
assistance.

Identify and enumerate Unorganized/ informal sector

workers in this category. X workers such as street vendors,
push cart owners, hawkers, self-
employed semi-skilled/skilled
Targeted interventions with workers, etc. recover lost capital
the focus on socio- and are compensated for income
economically and culturally X
lost.
marginalised and the
differently abled.

Special focus on tribal

communities. Closely linked X
with the SC/ST department

Provide livelihoods X
opportunities to the poorest
individuals by means of
enabling them to start very
low capital (nano) enterprises
by means of a livelihood start-
Poorest individuals in the
up programme.
unorganized sector supported to
start nano enterprises as petty
Design and implementation of traders, street vendors,
a livelihood start-up vegetable vendors, hawkers,
programme for assisting mechanics etc.
individuals start nano-
enterprises with subsidized
investment at below Rs.
50,000. This programme is to X
be developed along the lines
of Start-up Village

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 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond
Entrepreneurship Programme
(SVEP) under NRLM

Establish a ‘Crisis Women Leased Land Farming

Management Fund (CMF)’ for groups (JLGs) & micro-
micro-entrepreneurs and entrepreneurs belonging to
women JLGs engaged in leased X Kudumbashree, Theeramythri,
land farming. Women Development
CMF would be provided to the Corporation etc. that have
flood impacted women suffered losses receive financial
livelihood ventures based on assistance that help them revive
the extent of losses incurred their livelihood activity as also
(as discerned through an ABC recoup the income losses
classification). suffered during the floods.

Assess the feasibility, X

A study report that assesses the
suitability and required
feasibility and features required
features of a micro-insurance
for introducing a micro-
programme that would insure
insurance programme that
livelihood ventures from
covers the risks faced by
various hazards and
livelihood ventures.
calamities.

Capacity building of Tourism X

Department and the tourism Improved preparedness for
and hospitality sector for disaster events.
disaster risk management
planning, including early Improved ability to resume
warning and evacuation as business / activities post disaster
well as business continuity events.
planning

Improve the success rate of X

livelihood initiatives & micro-
enterprises by positioning
effective mechanisms for their
sustained handholding &
incubation. -

Microenterprise Resource
Centres (MRCs) are
established at Southern,
Central and Northern regions
of the State wherein Micro-

281
 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond
enterprises may avail X
specialized services such as
packing, branding, quality
assurance, appropriate
technology, procurement and
marketing support.

A Mentor Network for Micro-

enterprise support is
established at district level for
providing continued hand-
holding to micro-
entrepreneurs during start-up
as also operations. The
mentor network would X
comprise of sector-specialists
from farm (agriculture), off-
farm (livestock, poultry,
fisheries) and non-farm
sectors; as also functional-
specialists in procurement,
production, sales & marketing,
compliances etc

Leverage E-commerce Young entrepreneurs are able to

platforms to promote X reach new markets and
entrepreneurship. customers.

Develop Comprehensive ICT

system/MIS with dashboard to Improved last mile delivery of
track and monitor all government schemes
producers/ artisans/ X
Online mentorship system
Kudumbashree entrepreneurs
to improve targeting of Improved targeting of financing,
support services and provide and other support services
proactive support

Investment Items

Enhancing economic resilience X Traditional and artisanal

of traditional sector enterprises are able to transition
livelihoods partly from focusing on low
value-added traditional products

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 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond
Establish a design and product for the mass market to the
development centre to luxury segment/ export markets.
develop new designs & This would help them increase
products based on profitability and sustenance.
contemporary designs and X
market demand.

Strengthen the traditional

sector livelihoods in
handloom, coir, Khadi etc. by
addressing their key
challenges in increasing X
revenue and profit.

Strengthen livelihood projects

by formation of effective value
X
chains and forward &
backward linkages.
Livelihood projects, Co-
Support in developing export operatives, Producer Companies,
X
markets for NTFP like Honey Handloom, coir & other
traditional enterprises would be
able to generate greater
Building linkages between the business volumes, jobs and
Coir workers and Dept of income by forming effective
Environment/ LSGD/ Forestry X linkages, especially in weak
for promoting geo-textile- functions such as marketing.
based embankment protection

Set up a company based on The private partner would be

PPP model that would support provided a subsidy for ensuring a
livelihood projects, SMEs, mutually agreed return on
traditional sector industries, investment, if the initial business
producer companies and volumes do not ensure the
Cooperatives to undertake X same.
specialized functions such as
Sales, Distribution, Marketing,
exports, procurement, etc.
effectively.

Skilling for enhancing Provide new livelihood

employability X opportunities in areas such as:
- restoration of natural capital

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 0-6 0-18 18 months
Activities Expected Outcomes
months months & beyond
Address employment of X - Construction of
unskilled personnel by: embankments
a) Promoting skill upgradation - Construction of eco-friendly
of labour to take up jobs in buildings using low carbon
newly emerging sectors such foot print materials
as those involving green
technologies
The self-employment scheme
b) Formation of labour service would help unemployed persons
cooperative which can provide to start trading or service
services to households or enterprises with a relatively low
institutions, along the lines of capital. It would fill the current
SEWA. gap of the State not having
b) Designing and micro-enterprise schemes for
operationalizing a new self- males in the trading and service
employment scheme for sectors.
starting micro-enterprises
with capital below Rs. 10 lakhs
in the trading or service
sectors

4.11.6 Technical Studies and Assessments

The list of studies to be carried out to support the above policy, institutional and investments activities is
provided below.
Table 49: Livelihoods List of Studies

0-6 0-18 18 months

List of studies
months months & beyond

Policy

- Developing different risk transfer packages: Insurance scheme for

providing an end product-based insurance coverage to all sectors
X
of farmers, that could be formulated leveraging the modern
technology tools and global best practice models.

- Study of informal sector-based livelihoods X

- Scoping study for understanding existing and emerging livelihood

X
opportunities under various departments and sectors

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- HRVA of Tourism sector X

- HRVA of nano- and micro-enterprises X

- Assessment of key government schemes, effectiveness, gaps and

X
impact

- Assessment of private sector main points that dampen

investment, propose strategic investments and mechanisms for X
better private sector participation

Institutional

- Organizational assessment of key apex institutions (E.g. Spices

X
board / Dairy development institutions etc)

Other

- Value chain resilience studies of key Kerala product categories

- Assessment of key government schemes, effectiveness, gaps and

impact specifically covering the issues involved in the special
educational facilities and skill development institutions being X
implemented for the SC, ST and Fishermen communities and
evolving suggestions for intervention and improvement

- Carrying out a study and listing of the fishermen families who are
likely to be affected by loss of fishing waters due to the ongoing
expansion of inland waterways and devising and effective
X
programme for their livelihood rehabilitation through
development of inland fisheries based on ponds, quarry ponds
and other waterbodies.151

- Designing the indicators for the formulation of a Universal

Income Scheme, that would ensure a steady income job / social
X
security cover for every household among the SC, ST and
Fishermen communities.

151 To be considered as part of Fisheries Sector; mentioning here for comprehensiveness of addressing the issues
and planning of interventions.

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4.12 Sector: Land

4.12.1 Introduction
Kerala is characterized by an asymmetrical topography. Its landform is dominated by undulating, subdued
hills and steep scarp slopes, and its altitude ranges from below mean sea level to 2,694 meters above
mean sea level. The State has three distinct elevation zones known as the lowland, midland, and highland
regions. The State is extremely densely populated averaging 890 people/sq. km, and thus it is
understandable that there is a high demand for land. Additionally, Kerala’s high vegetation density and
widespread tree canopy cover, as well as seasonal rains and heat waves pose challenges to land surveys
and mapping.

4.12.2 Impact of 2018 floods

Status of Land Records in the floods impacted areas of Kerala: 379 of the 983 directly impacted villages
of the foods have only historical mapping on land holdings dating back commonly to 100 years. Thus, the
land holding maps (also known as revenue maps and later cadastral index maps) for these 39% of all
floods-impacted villages are grossly out of date, kept and maintained in paper and cloth, and are
commonly in unsatisfactory condition. Also, in these areas the records kept by the Department of
Registration and the Record of Rights kept by the Revenue Department most commonly differ in content.
These out of date, incoherent and manual land records cause an impediment for the relocation and
compensation of those who lost their assets and shelter. Incomplete and out of date land records also
impede the ability to reconstruct and improve infrastructure due to unclear land tenure and insecure
access to land.

4.12.3 Major Legacy and Current Issues

In Kerala, land records keeping is fragmented and while progress has been made in connecting the
records, their data on land ownership differ. Registration of deeds are kept by the Department of
Registration, and a Record of Rights by the Revenue Department, and the Field Book (i.e. a cadastral map)
by the Survey and Land Records Department. Land rights related litigation dominates courts in Kerala
stemming in part from the blind registration process that allows registration of deeds without verifying
the property details or existence of previous deeds on the same land parcel. Also, a large percentage of
land transactions between 1947 and 1967 have not been registered and vast State Land areas are being
encroached to an unknown, but significant extent. In result, cadastral mapping is grossly outdated
statewide requiring a resurvey in 46 % of Kerala’s close to 1,700 villages and in 39% of villages directly
impacted by the floods.

Land Administration System in Kerala

Kerala’s land administration system is fragmented and contains incoherent information. The
Department of Registration registers property transaction deeds in the Deeds Registry and collects 2% of
the transaction value as a Registration Fee and 8% as a Transfer Tax. This makes it the third largest source
of revenue in the State after the Sales Tax and Excise. Common issue of under declaration of transaction
prices is mitigated by an area-based valuation system that defines ‘Fair Values’ for properties, which

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constitute the minimum applicable values for the Stamp Duty and Registration Fees collection. The deeds
registration process is blind to the title chain per transaction making it vulnerable to frauds. In practice,
the Deed Registry does not have all the Deeds as the Stamp Duty and Mutation fees have in part
incentivized informal property transactions.
The Department of Revenue through its village offices maintains the Record of Rights. It was established
by the British for the collection of agricultural taxes but has evolved into the de facto Cadastre of the
State, containing land parcel and land holder information. The Record of Rights is considered the most
up-to-date land record in the State. However, it does not have legal value and it does not confirm the Title
to land.
The Department of Survey and Land Records maintains a Field Book i.e. individual survey plans of each
land parcel in Kerala. These plans are linked to the Record of Rights through Map Sheet and Parcel
Numbering. After registering a transaction to the Register of Deeds in case of a subdivision, the new owner
applies for a Mutation to subdivide the old parcel to two or more parcels and survey them to the Field
Book and to the Cadastral Index Map. However, often the owners do not proceed with the Mutation
request and the Field Book (and thus the Cadastral Index Map) does not get updated. Large numbers of
Mutations are pending, which undermines the value of the Field Book. As a result, the Cadastral Index
Map is less up to date than the Record of Rights, which the village officers of the Department of Revenue
maintain directly based on first-hand information on land use and occupancy.
Around half of villages in Kerala have reasonable standard land registry maps available. The Cadastral
Index Map which is compiled from the Field Book (which consists of individual legal parcel maps
established in Mutation surveys) by the Department Land Records and Survey has been scanned for 828
villages. The individual maps and records have not been scanned, and they are stored in indexed archives,
often without climate or dust control. Many maps are in a bad or poor condition to an extent that their
digitization would need to precede with conservation. Historically, updating of Kerala’s land records seized
in 1947, and was revived in 1964 with a programme of Cadastral Resurveying. Currently, 901 villages have
been resurveyed and the Record of Rights and the Cadastre Index Map are in a workable standard, but
still maintained in paper format and in local (rather than National) coordinate systems. The State has a
statewide Three-Order Geodetic Network connected to Survey of India’s National Coordinate Network.
However, many old cadastral surveys were done in a local coordinate system and have not been
georeferenced to the National System. New surveys are being carried out by GPS to the WGS -84 global
coordinate system. Estimated 763 villages need a full new survey for modernization, and about 100
villages have been completed to the new standard established for digital era surveying.
It is notable that the surveying accuracy requirements in Kerala are of a very high standard in global
comparison, which in part may have contributed to pending resurveys. However, a possible justification
is provided with the high demand on land in Kerala, and the fragmented and small land parcel structure.
The State is extremely densely populated averaging 890 people/sq. km, and thus it is understandable that
there is a high demand for land, and great level of attention to the land boundary details. Surveying in
Kerala conditions is hard in general. Widespread canopy coverage over boundaries make satellite image-
based surveys less efficient than commonly elsewhere, and the long rainy season is a major disturbance
to field surveys.
Land rights related litigation dominates courts in Kerala, stemming in part from the above described
challenges and in particular from the Deeds Registration system that allows registration without verifying
the chain of title on the land parcel in question. Also, as described, a large percentage of land transactions
between 1947 and 1967 have not been registered, and vast State Land areas are being encroached to an
unknown but significant extent, causing property disputes. Property valuation infrastructure is also weak,
particularly due to outdated valuation system and challenges with access to reliable land market

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information (as transaction values are commonly under-declared) causing litigation, for example related
to land acquisition compensation. However, there is also substantial amount of land related litigation that
simply relates to occupancy and boundary disputes. While progress with updating and integrating land
records will have a direct positive impact to land related litigation, complementary investments are
required. Solid step forward is achieved with investing in mass valuation systems using the improving land
records and registered transactions as the base data. Gradual steps towards a more market-based
valuation infrastructure will reduce compensation-based litigation and improve fairness and equality
between landholders in taxation and land acquisition, and subsequently improve the currently slow land
acquisition speed. Another common problem is that local courts tend to lack expertise to settle land
ownership, boundary or land compensation cases. Evidence suggests that technical land disputes should
not be left to clog the court systems. They should be solved initially at an administrative level and be
subject to court ruling only if parties disagree with the administrative solution. Global evidence also
suggests that local courts are not always capacitated to handle land and property disputes. Many
countries have made use of particular Lands Tribunals, or other specialized courts to handle land and
property disputes, while the land administration system has yet to reach a full level of maturity.

Land Records Modernization

Kerala implements the Digital India Land Records Modernization Programme (DILRMP), which is part of
the Digital India Policy that aims to making government services available to citizens electronically by
improving Internet connectivity and making the country digitally empowered in the field of technology.
The DILRMP guides States to invest in land records as the base for all development including infrastructure
investments, planning, construction, revenue generation, and jobs and growth. The DILRMP modules
include of (1) Computerization of Land Records, (2) Survey/ Re-Survey, (3) Computerization of
Registration, (4) Modern Record rooms, and (5) Training/GIS/Legal FW/Programme Management. These
investments stand comparison to international best practice, in particular when coupled with institutional
reforms that make land authorities operationally sustainable. While Kerala has made solid progress in
implementing DILRMP, resources have been inadequate for completing the job in particular related to the
re-survey of records and creating a fully digital system. There is a lot of international experience and
knowledge from countries with successful land registration programs that could help Kerala and other
States in in completing and integrating land records and cadastral maps statewide with an increased
efficiency and speed.
Progress with the Comprehensive and Digital Land Administration System in Kerala. The initial stage of
DILRMP with computerization of Record of Rights and the computerization of Deed Registry indices have
been completed for the most part, and records are interlinked to a single point of entry accessible by
village offices. In more details, the Register (Index) Books have been digitized (back to 30 years) and 92%
of register books have been linked online to the Record of Rights of the Department of Revenue. No access
is provided to the Field Book or the compiled Cadastral Index Map. Positively, information requests and
few other electronic service requests to the Deeds Registry can be processed online. However, this
constitutes only an index level digitalization rather than digitalization of the entire system, and the
information between the records is not harmonized due to multiple reasons explored above. The paper-
based processes of property transactions, registration of deeds and updating of revenue records are
continued, and the document archives have not been digitized at all, and they are often not securely
maintained. The village offices work and maintain paper Revenue Records and the Field Book. The
registered Deeds (that are physically required for each transaction) and other archived documents have
not been digitized. True digitization of land administration system will only be achieved when the digital
processes and records replace paper-based processes. In terms of process streamlining for enhancing

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transactions, the use of licensed document writers for drafting Deeds of Sale have been made voluntary
and corresponding document templates have been made available to public online.

4.12.4 Proposed approach

Secure tenure is the key for reducing vulnerability and risks. The more secure, formal and reconcilable
the rights and systems are, the less vulnerable the land users are for eviction or loss of livelihoods in the
case of a disaster. Comprehensive and secure land records offer critical protection of rights when
population is displaced by a disaster. Therefore, investment to secure tenure is a direct investment to
disaster recovery and resilience. In addition, secure tenure and comprehensive land administration
systems increase investments to dwellings, which reduces risks and improves resilience through better
siting and construction of buildings. Comprehensive land records and covering information on land leads
to improved understanding of risks and evidence-based land use planning and land management. For
example, it helps directs housing and occupancy to areas of low hazard exposure. The most vulnerable
households are those that rely on access to land with temporary and insecure tenure. These include
sharecroppers, farm laborers, and informal settlers. Apart from the dwellers, economic activities also
require similar protection. Legal security of tenure allows claims on land and property to be validated
easily and underpins the return and restoration of pre-disaster activities. Vulnerabilities increase with
women, children, the elderly and those with disabilities. Minorities may be vulnerable due to past
discrimination in securing tenure, i.e. in regularizing their land occupancy.
Land and geospatial information plays an important baseline and development platform role at the
forefront in all Disaster Risk Management phases: Geospatial information is critical to disaster prediction
(simulation and visualization), prevention, preparedness and mitigation, emergency response, evacuation
planning, search and rescue, shelter operations, and the post-disaster restoration and monitoring. A
comprehensive and resilient land and geospatial system also secures the quick recovery of economic
activities by providing accessible and instant data on the impact, the value of losses, and the beneficiaries,
as well as the levels of appropriate compensation and required recovery investments.
Land administration systems including legal land registers (properties, rights, owners, lessees, lessors),
legal and fiscal cadastres (real properties, land parcels, buildings, parts of buildings, fixtures, users and
land and property values), and register and cadastral maps, provide an important repository of pre-
disaster land use, property assets and land occupancy, which provides the base for estimating damage,
loss and economic impact, as well as eligibility for support, return and/or compensation. Land
administration systems’ relevance to resilience correlates with their ability to deliver their base duty of
securing tenure. Systems’ reach is improving in urban areas and with properties of value, but the world’s
poor still rarely have access to legal security of tenure increasing their vulnerability also in the occasion of
disasters.

Interventions
Kerala State needs to unify and complete its land records and maps for improved resilience. Apart from
sheer upscaling of investment in resurveys, success with land records requires institutional and
operational integration and programme to complete and update land records systematically across
Kerala. Major resilience impact is achieved by prioritizing resurvey and records updating to villages in most
vulnerable areas to disasters. More concretely, 379 villages require full resurveying in the past floods
impacted areas, and another 384 elsewhere state-wide for an advanced state of land records in 50% of
villages in the State. In areas with new survey completed during past few decades the records are better

289
up-to-date, but require integration, interlinking, updating, digitalization and modernization. Integration
can be progressed primarily along two main lines of progression a) technically and b) institutionally.
Eventually, modern land records and maps would desirably be fully integrated technically through a
unified Land Information Management System that brings together the Department of Registration’s
Deeds, and the Record of Rights and Field Book by the Department of Revenue through interlinked digital
databases allowing service provision and data provision proving clients joint access point and services an
online updating of all three records. Technical integration is commonly a first step towards also legal and
institutional integration, which in Kerala would bring together the land records and land record operations
of the Department of Registration and the Revenue Department to a single land registry and map of
Kerala. Eventually this could lead into the creation of a new single authority on land registration, cadastre
and cadastral surveys i.e. the Kerala Land Agency.
The State has made a good effort in implementing the land records modernization with constrained
resources. Investments to land information systems under the Bhoomikeralam project that preceded the
Kerala Land Records Modernization Mission interlinked the Department of Registration’s and Revenue
Department’s record indices together. This revolutionized access to information between the two
departments. The Kerala Land Records Modernization Mission is set to take the next step of digitalizing
and interlinking the records, archives and processes themselves creating a true digital land administration
system. However, achieving in concrete state-wide an integrated, digital, and up-to-date land records and
cadastre system would require a programmatic investment of scale as well as rational process, technical
and institutional reforms. Also, a regulatory reform will eventually be needed to replace manual land
registration practices with digital processes eventually allowing fully digital access and services, even
electronic conveyancing. The pending Kerala Land Administration and Management Act of 2017 would
create a single land records system to Kerala and introduce an incremental transfer to a conclusive land
titles system in the State. The Act is eventually needed, but technical integration, resurveys, digitalization
and electronic web-based services should not wait for the ideal legal basis. Rather, progress with land
records modernization will make the case for the eventual and full legal reform on land administration. It
will be an investment well worth making. An investment in land records modernization and in the land
sector bears potential for a high impact intervention. Increased security of tenure, digitized and accessible
records and maps that provide a repository of information on property assets, their values and owners
and allow land tenure sensitive informed decision making, master planning and construction
implementation will have a dramatic positive impact to resilience in Kerala.
Progress with land related litigation will require also investments to judiciary and valuation
infrastructure. Parallel investments to mass property valuation systems should follow the land records
modernization investments. Resilience impact would be maximized by investing in areas to disaster prone
areas where future disasters will potentially direct compensation cases, land acquisition and
infrastructure investments. Revenue impact easily offsetting the investment will be achieved by focusing
initially to high market demand urban centres and most valuable property segments, such as to
commercial properties. Land records updating and completion is a prerequisite for a comprehensive
valuation system capable of assessing all recorded properties annually. A lands tribunal approach could
also be considered for removing backlogs of land cases in local courts. Lands tribunals tend to be periodical
investments that are needed in the evolution of land administration systems when records, infrastructure
and services are incomplete and litigation stems from this incompleteness. Land tribunals tend to become
redundant when the land records modernization and completion progresses. Kerala could consider a 10
– 20 years investment to a Lands Tribunal approach where specialist judges and land administrators would
efficiently adjudicate land disputes.

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Challenges are sizeable, but doable with a concerted and programmatic effort. Consequently, the
creation of the Kerala Land Records Modernization Mission for enhancing DILRMP implementation and
completing comprehensive and modern land records to Kerala is a critical step towards improving security
of tenure for multiple benefits. Importantly, the creation of the mission and making progress with DILRMP
has a direct impact to resilience and reduction of vulnerability. The more secure, formal and reconcilable
the rights and systems are, the less vulnerable the land users are for eviction or loss of livelihoods in the
case of a disaster. Comprehensive and secure land records and tenure offer critical protection of rights
when population is displaced by a disaster. Therefore, securing tenure directly contributes to rapid
disaster recovery and resilience of vulnerable households. In addition, secure tenure and comprehensive
land administration systems increase investments to dwellings, which reduces risks and improves
resilience through better siting and construction of buildings. Comprehensive land records and covering
information on land lead to improved understanding of risks and evidence-based land use planning and
land management that guides siting of vulnerable land uses such as housing in areas of low hazard
exposure.
Once complete the land records will have multiple social, growth and revenue impacts, and allow
protection of rights in the moments of disasters and allow informed responses after the disasters.
Valuation infrastructure improvements are among the most important direct opportunities improving
infrastructure investment implementation and recusing litigation.

4.12.5 Specific Interventions

Table 50: Land Actions and Results Framework

Activities 0-6 0-18 18 months Expected Outcomes

months months & beyond

Policy /Regulatory

Adoption of the Kerala Land Administration X Unified Land

and Management Act. Register and
Cadastre System in
Kerala.

Institutional

Operationalization of the Kerala Land X Adoption of a

Records Mission unifying the land records programmatic
and registry map work of the Department of approach for
Revenue, Department of Land Records and completing the land
Surveys, and the Department of records and maps in
Registration. Kerala.

Creation of a costed and timed programme

for completing land records modernization
in Kerala with components for (1)

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 Activities 0-6 0-18 18 months Expected Outcomes
months months & beyond
Computerization of Land Records, (2)
Survey/ Re-Survey, (3) Computerization of
X
Registration, (4) Modern Record rooms.

In the mid-term the Digital Land Records

and Cadastral Index Maps will become
integrated to the broader Electronic
Governance system of the Kerala State
including Geospatial Data Infrastructure
with Base Maps and Satellite Images, Land
Use Maps, Land Use Plans and Zoning Data,
as well as Census Records, Legal Entity
Records, Address Records etc. This will
create a situation where the general public
has access to all relevant information prior
to making investments. This will change the X
investment scenario of Kerala

Functional/institutional merger of the land

registry and cadastre records and services in
Kerala. Functional review of the current land
administration system for consideration of a
fee based, or private public partnership
based, Kerala land agency. X

Investment Planning

Land registration and cadastral mapping Comprehensive land

needs assessment, and business process records and maps in
X
review. Kerala, initially
covering the most
ICT system design, process reengineering;
disaster risk parts of
Digitalization assessment and plan; Kerala.
Mass survey and registration campaign
piloting.
Gender
X disaggregated data
Implementation of: on land ownership
and transactions
- Deeds, Field Book, cadastral map and record
of rights systematic digitalization
- An integrated land information and Digital and
management system in Kerala. accessible land

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 Activities 0-6 0-18 18 months Expected Outcomes
months months & beyond
- Systematic campaign for land records administration
modernization in the most disaster risk parts system and services
of Kerala. accessible online
- Mass valuation system development and
piloting.
Lands tribunal needs assessment.

4.12.6 Technical Studies and Assessments

Table 51: Land List of Studies

List of studies 0-6 0-18 18 months

months months & beyond
Policy
Valuation infrastructure, land acquisition, land litigation,
X
property taxation studies.
Institutional
Functional review of the current land administration system for
consideration of a fee based, or private public partnership based, X
Kerala land agency.
Investments

Technical Assistance:
- Needs assessment, and business process review
- Business process reengineering X
- ICT System and Digitalization
- Land Records Completion and resurveys
Investment programme on:
- Digitalization
- ICT system implementation X
- Land records completion and resurvey
- Valuation infrastructure and systems
- Land related litigation
Others
Preparation of an inventory of land parcels (listing out the
locations, boundaries, extent, land type, present ownership, land
X
use etc) owned by various Government Departments and
Agencies.

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 RKDP Financing, Institutional and Implementation
Arrangements

5.1 Financing Needs Summary

As noted previously, a JRDNA was conducted by GoK, with support from the ADB and the World Bank,
covering 12 sectors and all 14 districts in the State which were affected by the floods and landslides to
varying extents. The JRDNA was complemented by a more PDNA, led by Government and supported by
the United Nations. The assessments estimated that total damages and losses to be around Rs. 26,720
crore (see the table below) and total recovery needs at around Rs. 31,000 crore. Infrastructure sectors
like transportation, water, sanitation, power and irrigation were the most affected and have the largest
recovery needs, followed by social sectors152, productive sectors and crosscutting sectors.

Table 52: Overview of Disaster Effects and Recovery Needs

Sector Damage Loss Total Effect Total Recovery
(D+L) Needs
Rs. crore Rs. crore Rs. crore Rs. crore
Housing, Land and settlements 5027 1383 6410 5443
Irrigation & Water Resources 1483
Water, Sanitation and Hygiene 890 471 1361 1331
Integrated Water Resources 24
Management
Power 353
Transport 10046
Health and Nutrition 499 28 527 600
Agriculture, Fisheries and livestock 2975 4180 7155 4498
Livelihoods 881 9477 10358 3896
Education and Child Protection 175 4 179 214
Disaster Risk Reduction 17 583 599 110
Natural Environment & Biodiversity 26 0.04 26 148
Cultural Heritage 38 37 75 80
Source: Kerala Floods 2018 PDNA
Note: (i) The values have been rounded so the totals may not match.

A preliminary analysis of RKDP priorities yield a total outlay of Rs. 36,506.88 crores for a period from 2019
to 2027 (see the table below). These are initial estimates of investment needs in critical sectors noted in
the table below. This list is by no means comprehensive. For example, there are sectors such as fisheries,

152Social sectors include Housing, Land and Settlements, health and nutrition, education and child protection, cultural heritage.
Productive sectors include agriculture, fisheries and livestock.

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environment and livelihoods which have not been included in these estimates and will be assessed
subsequently. Within the assessed sectors also, the estimates are based on the following criteria:
 Critical priorities in the most flood- and landslide-affected areas;
 Projects and investment estimates shared by the respective departments;
 Projects and investments that are relatively shelf-ready or have been vetted previously; and
 Projects that have significant positive impacts on the poor, vulnerable, women and children

Table 53: Summary of Investments required for Rebuilding Kerala

Investments required in Rs. crore Total in Rs.
Sector Implementing agency
Short term Medium term Long term crore
Rural Roads
247.94 247.94
LSGD
Urban roads
86.90 86.90
Roads in
Municipal Municipal
Corporations Corporations 7.53 7.53

State Highways
Public Works
& key feeder
Department 986.62 295.20 717.80 1,999.62
roads
Water
Water Resources
Resources
Department 435.00 2,036.89 2,100.00 4,571.89
Management
Rural Water Kerala Water
Supply Authority 470.00 9,488.00 9,958.00
Urban Water Kerala Water
Supply Authority 3,584.00 1,495.00 4,300.00 9,379.00
24x7 water KWA+ Municipal
supply in MCs Corporations 555.00 2,235.00 2,790.00
Urban
KWA+ LSGIs
Sanitation 356.00 1,479.00 1,835.00
Urban & Rural
KWA+ LSGIs
Sanitation 746.40 2,985.60 3,732.00
Agriculture
Dept. of Agriculture
1,035.00 665.00 1,700.00
Animal
Dept of AH
Husbandry 199.00 199.00
20,679.69
Grand Total 8,709.39 7,117.80 36,506.88
Short Term = 2019-2021/22
Medium term = 2021-2023/24
Long term = 2024-2026/27

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The success of RKDP is contingent on having a sound financing strategy to meet these requirements,
especially considering the fiscal challenges that Kerala faces in the short term.

5.2 Kerala’s Macroeconomic Fundamentals

Kerala has enjoyed respectable economic growth. Real Gross State Domestic Product (GSDP) has grown
by approximately 5.8 percent on average between FYs 2011-12 and 2016-17 slightly (below the 7.0
percent average for Indian states), although it has risen to 7.4 percent in the two most recent years
(FY16/17 and FY17/18). The structure of Kerala’s economy has changed significantly over the past decade,
with the share of agriculture in gross value-added falling from around 18 percent in FY 2004-05 to 11
percent in FY 2016-17, and the shares of industry and services increasing from 23 and 60 percent to 26
and 63 percent respectively over the same period. Inward remittances provide a significant source of
financing for Kerala, which received almost 20 percent of all remittance inflows to India (Rs. 396,200 crore)
in FY 16/17. Within services, tourism is a key subsector, accounting for 10 percent in the state’s GDP.

Kerala can further tighten its fiscal discipline. After some improvement over FY02/03 to FY10/11, Kerala’s
fiscal performance deteriorated from FY11/12 onwards, with the fiscal deficit crossing the 3 percent mark
that year and remaining above it in all subsequent years thereafter. This deterioration was primarily driven
by gradual increases in committed expenditure (especially on salaries and subsidies) and, in FY16-17
(when the deficit reached 4.3 percent) particularly by the implementation of the 10th pay revision and the
clearance of large contingent liabilities. Kerala stands out, among comparable states, in terms of both
(low) own-revenues and (high) committed expenditures to GSDP. Although the state adopted a Fiscal
Responsibility and Budget Management (FRBM) Act in 2003, (including an amendment, which came into
force in April 2017 mandating the state to maintain a fiscal deficit of no more than 3 percent of GSDP
during the period from FY17/18 to FY19/20), this was of little practical effect. In FY17/18 the fiscal deficit
stood at 3.3 percent of GSDP, and revised budget estimates for FY18/19 have put it at [3.1] percent.

Total revenues have risen, but so have expenditures. On the revenue side, own-tax revenues, have been
stable over the last five years, averaging 6.8 percent of GSDP (accruing primarily from the sales tax and
VAT, excise duties, motor vehicle tax and land revenue, as well as SGST since 2017) while the state’s share
in central taxes increased significantly in FY15/16 to account for over a fourth of total tax revenues. By
contrast, non-tax revenues increased over the last decade from 1.7 percent of GSDP to about 3 percent
of GSDP thanks to increases in both state own non-tax revenues and grants in aid from the centre. Overall,
funds received from the central government have risen from an average of 2.6 percent of GSDP over
FY06/07 to FY15/16, to at least 4.0 percent from FY 2016-17 onwards, to make up approximately 31
percent of total state revenues. Similarly, however, total expenditures also increased steadily over the
past decade. During this time, expenditures ranged from 12.6 percent of GSDP in FY09/10 to 16.4 percent
in FY17/18. Current expenditures, which account for more than 90 percent of the total on average, have
increased since FY10/11 from 11.3 percent of GSDP to 14.8 percent in FY17/18. The main reasons for their
rise, especially in FY17/18, include the implementation of the 10th pay revision, and the distribution of
social security pensions and long pending arrears. In turn, committed expenditures153 accounted for the
lion’s share of current expenditures (approximately 63 percent on average over the past 10 years). Capital
spending, whose share in total expenditures has traditionally been low, stood at 1.5 percent of GSDP in
FY17/18, much below the national average of 3.0 percent of GDP.

153 Whch includes salaries, wages, pensions, subsidies, interest payments and devolution to local self-governments

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 Figure 43: Fiscal Indicators (% of GSDP) Figure 44: Deficit and Debt Dynamics

Fiscal Deficit (LHS)

Total Revenue (RHS)
Total Expenditure (RHS) Fiscal Deficit (LHS) Public Debt (RHS)
5.0 18.0
5.0 32.0
4.0 16.0 31.0
4.0 30.0
3.0 14.0 3.0 29.0
28.0
2.0 12.0 2.0 27.0
1.0 10.0 1.0 26.0
25.0
0.0 8.0 0.0 24.0

FY 2007
FY 2008
FY 2009
FY 2010
FY 2011
FY 2012
FY 2013
FY 2014
FY 2015
FY 2016
FY 2017
FY 2018
FY 2019
FY 2007
FY 2008
FY 2009
FY 2010
FY 2011
FY 2012
FY 2013
FY 2014
FY 2015
FY 2016
FY 2017
FY 2018
FY 2019

Figure 45: Contributions to Changes in Debt/GSDP

6.0% 37.0%
36.8%
4.0% 36.6%
36.4%
2.0% 36.2%
36.0%
0.0% 35.8%
35.6%
-2.0% 35.4%
35.2%
-4.0% 35.0%
2014

2015

2016

2017

2018

Real GDP growth Real interest rate

Primary balance Debt/GDP Ratio (RHS)

As a result, Kerala’s public debt has been gradually increasing as a percent of GSDP. Public debt declined
continuously between FY07/08 and FY11/12, but rose rapidly thereafter, due to (i) relatively low GSDP
growth, (ii) relatively high deficits, and (iii) a rise in borrowing costs. While the public debt/GSDP ratio
increased by two percentage points, from 24.6 percent in FY11/12 to 26.7 percent in FY15/16, it shot up
to 30.2 percent in FY16/17. It stood at 30.7 percent at the end of FY17/18 which is marginally above the
target of 30.4 percent of GSDP prescribed by the state’s FRBM (2017-18 amendments), and significantly
above the 25 percent level recommended by the 14th Finance Commission.

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5.3 State Government Macroeconomic Outlook and Debt Sustainability
As per pre-flood projections, Kerala’s fiscal position was expected to improve steadily over FY18/19-
FY20/21. The improvement was expected to result from the combination of:
a) subdued expenditure growth: with virtually flat ratios of capital expenditure as a share of GSDP (from
1.5% in FY17/18 to 1.6% by FY20/21) and only slowly increasing recurrent expenditures as a share of
GSDP (from 14.8% in FY17/18 to 16% by FY20/21), entirely because increases in non-committed
revenue expenditures;
b) relatively significant gains on the revenue side, with revenue receipts projected to increase as a share
of GSDP by almost two percentage points (from 12.9% in FY17/18 to 14.7% by FY20/21)
As a result, the, fiscal deficit was projected to decline gradually from 3.3 % in FY17/18 to just above 3
percent in the following year and 2.9% by FY20/21.
Under that baseline scenario, and assuming robust nominal growth, Kerala’s debt trajectory was
projected to decline steadily by FY21/22. Specifically, the debt to GSDP ratio was projected to decline
from 30.7 percent in FY18/19 to 28.1 by percent by FY22/23. The decline was expected to be driven in
equal measures by a favourable growth interest rate dynamic and by reductions in the primary deficit.

Under an alternative scenario that considers flood impacts, debt increases before declining again. If we
model the impact of the flood as resulting -relative to the baseline- in higher primary deficit and lower
nominal growth levels over FY18/19 to FY21/22 the debt to GSDP ratio increases initially from 30.7 percent
in FY18/19 to 31.35 percent in FY20/21 before returning to a declining path and falling below current
levels by FY22/23.

Thus, Kerala’s macroeconomic policy framework is considered broadly adequate. With respectable
economic growth and gradual fiscal consolidation, the debt/GSDP ratio is expected to fall over the
medium term. The positive medium-term outlook, however, is subject to several downside risks, and its
realization is contingent on sustained economic growth, improvements in revenue collection, and
continued efforts at fiscal consolidation.

Figure 46: Kerala Fiscal Indicators under Figure 47: Debt Dynamics under the Baseline and
Baseline Scenario Alternative Scenarios

20.0 3.4 32.50 Debt/GSDP (%)

3.3
15.0 3.2 31.50
3.1
10.0 30.50
3.0
5.0 2.9 29.50
2.8
0.0 2.7 28.50
FY 2018

FY 2019

FY 2020

FY 2021

27.50
2018-19

2019-20

2020-21

2022-23
2021-22

Fiscal deficit Revenue Receipts

Total Expenditure

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5.4 Financing of RKDP

Funds necessary for implementing RKDP will be raised from multiple sources:
 State Budget — plan and non-plan allocations, including assistance from multilateral agencies (World
Bank, AIIB and ADB), bilateral agencies (KfW, AFD, JICA, etc.)
 Central government natural disaster assistance for meeting expenditures which conform to modalities
prescribed by GoI
 Flood cess - amounting to 1% of the GST on select goods and services for a period of 2 years
 Additional allocations under Centrally Sponsored Schemes
 Deployment of Flexi-Fund under Central Government Schemes
 Crowdfunding
 Mobilisation through CMDRF
 NABARD Funding through NIDA
 HUDCO and other loans
 Private and non-traditional sources of institutional and retail financing, including Masala bonds,
Diaspora bonds and other private sector sources of financing

5.5 Challenges of Financing RKDP

There are financing challenges for RKDP that the State Government will have to continually keep resolving
as it moves along the execution trajectory for the programme. Given the level of committed expenditures
in the State, one major issue that is being discussed extensively within GoK, is the lack of fiscal space for
the State to borrow.
No doubt, the task before Government to implement RKDP is quite formidable but not insurmountable.
The State’s Gross Domestic Product (GSDP) is estimated to be Rs.8.75 lakh crores (US$ 126 billion).
Against these figures, the 3% limit for the State’s borrowing works out to Rs. 25,000 crores (US$ 37.8
billion).
One of the most preferred routes for market borrowings for all States are Development Loans (SDLs)
permissible under RBI guidelines and regulated by it. These are dated securities issued by states for
meeting their market borrowings requirements and meet their budgetary obligations. The limit for
borrowing under State Development Loans is determined by RBI. SDL securities are eligible securities for
Statutory Liquidity Ratio (SLR) and Liquidity Adjustment Facility (LAF) of the RBI. Hence institutions like
Banks have an appetite for investing in these instruments. The SDL securities issued by states are credible
collateral for meeting the SLR requirements of banks as well as a collateral for availing liquidity under the
RBI’s LAF including the repo. SDL is a market-oriented instrument for states to mobilise funds from the
open market. The yield for the SDL borrowings of any State corresponds to the fiscal rating that a State
has. RBI facilitates the issue of State Development Loans securities in the market. SDL securities are more
preferred by State Governments to loans mobilized or bonds issued by state government entities. The RBI
as the facilitator to the issue of SDLs, has the power to make repayments to SDLs out of the central
government allocation to states. Thus, there is no credit risk attached to SDLs.
Every year, GOI specifies the limits of a State for its overall borrowings at 3% of the State Domestic
Product. Included in this are a range of instruments including the SDLs, RIDF allocations through NABARD,
loans from LIC/GIC, NCDC borrowings etc. But more significantly from the perspective of RKDP, the limit
includes the amounts availed under Externally Aided Projects (EAP) also.

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The right of GOI to grant permissions arises from Article 293(3) of the Constitution, which makes it
mandatory for State Governments to have the permission of the Central Government to raise fresh loans
and the right of GOI to set conditions for this is derived from Article 293(4) of the Constitution.
Prior to August 2017, GOI would set these limits in respect of the total loans that were to be availed by
the State Government in each year. But, from that date onwards, GOI introduced the practice of allowing
only residuary amount left after setting off the amounts that a State Government had accumulated in its
Public Accounts. Unfortunately, this has had the effect of GOI extending its hold on the management of
the Public Account of the States, even as Article 293 referred to the control on loans alone. The Public
Account created by the Constitution, thus, has for all States lost its potency as an effective buffering
mechanism to help States in their fiscal management. Not only are the loans availed by a State
Government forced to stay within the ‘3% of GSDP limit’ but, with this push on the Public Account, the
Gross Fiscal Deficit (GFD) (less the Capital Receipts of Government) too are also pushed under this limit.
All this creates an imminent risk for RKDP. Unless, the EAPs for rebuilding the State under RKDP are kept
outside the 3% limit, the State’s efforts to rebuild and reposition the State post the floods and increase
its post-flood resilience, will be stymied.
The arguments for why EAP funding to Kerala is critical at this juncture of its economic history, following
the August 2018 floods, is obvious. The requirement of resources needed for rebuilding the State and its
economy in the aftermath of the floods is colossal. There would be no area more eligible than post-
disaster rebuilding, in which international assistance at concessional or reasonably priced rates can be
most effective. While a State like Kerala manages its own budgets quite effectively, the fact remains that
it does not have sufficient funds for focused interventions in areas like transportation, water resources,
agriculture, sanitation, urban waste handling. It is such kind of interventions with specific infusions of
funds and human resources that can enable the State to make a quantum jump required to propel a flood
affected State of Kerala to a higher orbit of sustainable economic development.
In short, effective utilisation of international financial support in delivering public goods in developing
countries and that too in a State like Kerala in the wake of this natural calamity cannot be over
emphasised. Many public goods and services do not lend itself to private investment. Their return
economic rate is not well defined and private investors are often not willing to venture into such uncertain
terrain. External Assistance can be an effective substitute for private capital here, providing funds for
investment in public goods at rates that are more favourable to the borrowing entity than what is available
in the domestic and international financial markets. Hence, if, through proper design of external
assistance programmes, it can be ensured that spending in unproductive activities are eliminated, then
such assistance is a big source of strength and support for a region finding its way back after facing a
natural calamity. One danger of frittering away external assistance is to entrust execution to
governmental agencies which do not have the necessary technical or administrative skills and use it
inappropriately. That, is the main reason that capacity building of human resources along with
upgradation of standards, as outlined in the previous chapters, are identified as core priorities under
RKDP.
As against a budgeted increase of 23.86% in the State’s Own Tax Revenue for 2019-20, early growth trends
in own tax revenue for the month of February - April 2019 indicate likelihood of significant shortfall in the
State’s own tax revenue for the year 2019-20. To a considerable extent, this would reflect the persistent
deleterious effect of the August floods on the economy of the State. This will directly manifest itself in
lower consumption spending which will further impede the recovery and growth of the economy. This
will, over 2019-20, translate into a more pronounced increase in revenue deficits, unless swift
countervailing measures for expenditures are introduced through RKDP. Given these considerations, it is

300
even more important that the rebuilding efforts of the State tap into all possible sources of External
Funding through EAPs.
Putting constraints on availing EAPs would exacerbate the effects of the floods and decelerate the process
of recovery set in motion by Government. If EAPs, as part of RKDP is to be set off against the total
borrowing limit and consequently restricts SDL, then this would result in weakening the State at a time
when it needs such assistance most. The argument relates to a distinction between the use of SDLs and
the use of advances from EAP. SDLs are free cash which can be used to meeting budgetary deficits. EAP
advances on the other hand, are tied to specific programs and projects. Setting off EAP advances against
the total gross borrowing limit to allocate the SDL quota to the State Government, directly results in
constraining the free and untied cash flow of Government. This would have very heavy consequences on
the budgetary management of the State.
If, for financing of RKDP, it becomes necessary to make inroads into the regular budgetary financial
allocations for ongoing development and administrative expenditure of the State, then the development
outcome may be quite contrary to what is envisaged as the goal under RKDP. The erosion of the normal
expenditure programmes of the State would lead to the weakening of State’s ongoing development – an
outcome that is antithetical to the very philosophy under RKDP. This will further make the goal of holistic
development of the State - where the principles enunciated under RKDP, as explained in this document,
will be absorbed into planning and policies in Government and will through RKDP, permeate into and
strengthen the very fabric of public institutions – more difficult.
The State Government has already appealed to GOI for keeping EAPs under RKDP outside the purview of
the State’s borrowing limits. The State will have to tenaciously continue its efforts to drive home its case.

5.6 Analysis of RKDP Financing from a Public Finance Perspective

Since the crux of the decision around RKDP will be the availability of fiscal space for GoK, it becomes
necessary to examine this in detail. In building a model to do so, one has to rely on several basic
assumptions for reasons that are evident. A model, as is often said, is an abstraction of reality or a
representation of a real object or situation. Given the numerous econometric parameters required for a
more rigorous approach, a very simplified approach has been used for assessing the fiscal space for the
State to accommodate RKDP. These assumptions are shown in the Table below.
Table 54: Fiscal Assumptions to Accommodate RKDP
Model Assumptions Rs. (crore) USD (billion)
RKDP Outlay 36500 5
RKDP Outlay (less Budget outlay of Rs.1000 crore in State Budget 2019-20) 35500 4.86
Revenue-Capital Mix in RKDP 40%
Capex Fiscal Multiplier 2.45
Revenue Expenditure Fiscal Multiplier 0.99

These assumptions are explained below:

1. The overall budget requirement for RKDP will be of the tune of Rs. 36,500 crore (approx. 5 Billion USD)
as approximately identified in this document. Out of this Rs. 1000 crore has been budgeted in the
Annual Budget of GoK for 2019-2020.

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2. The Revenue-Capital Mix under RKDP will obviously undergo a great deal of refinement and assume
more finality over the projects design phase of RKDP. For this analysis, it assumed that 40% of all RKDP
expenditure will be revenue in nature while the rest will be capex.
3. One of the constraints for developing a more accurate model, is that there no authentic forecasts of
the State’s public finance over the next five years. The only official record is the Medium-Term Fiscal
Plan, presented along with the State Budget. This document presents at a three-year period from
2019-20 to 2021-22. These official estimates were disaggregated, and each item modelled using a
simple two-year Moving Average forecast building on the growth estimates in the official figures
themselves. While, this simplistic approach cannot boast of any academic rigour, it does yield a fair
understanding of the shape of the public finances in the next six years over the life of RKDP.
4. For estimating the impact of Government expenditure under RKDP, a simple approach of using impact
multipliers (both for revenue expenditure and capex) is adopted (Source: “Fiscal Multipliers for India”
Sukanya Bose and N. R Bhanumurthy, National Institute of Public Finance and Policy, New Delhi, May
2014).
5. One of the crucial assumptions for developing such a model is that the growth of the State Budget
will be in line with historical trends. The rest of the fiscal space will be available for accommodating
the expenditure requirements under RKDP. This means that the State’s Annual Plan will continue to
grow at historical rates, and will cede the extra space for growth it would need to accommodate RKDP.
6. The Revenue Expenditure under RKDP will be assumed to be higher during the early years and then
tapers off towards the end of the implementation period.
7. The Capital Expenditure on the other hand, is assumed to peak towards the middle of the
implementation period and then tapers off towards the end of the implementation period.
8. Another assumption is that the repayment liabilities because of RKDP, will devolve on the State
Government after the expenditure horizon of RKDP. For purposes of this analysis, the post RKDP
impact on State Debt is not considered here.

Four scenarios have been analysed. The four scenarios assume that RKDP will be implemented almost
fully over three, four, five and six years respectively. It is also assumed that there will be spillovers of 30%,
25%, 20% and 10% in the project implementation. This means that under Scenario I, with a spillover of
30%, it would mean that only 80% of the project would be completed during the assumed expenditure
horizon of three years. Likewise, for Scenario II, III and IV the extent of completion within the assumed
expenditure horizon of 4, 5, and 6 years would be 75%, 80% and 90% of the total RKDP, respectively. This
is shown in the Table below.

Table 55: Scenario Analysis

SCENARIO I II III IV
RKDP Expenditure Horizon (Years) 3 4 5 6
% RKDP spent during the horizon period 70.00% 75.00% 80.00% 90.00%
(Rest being spillover or projects that are non-
starters)

Under each scenario, the incremental increase because of RKDP, in two important fiscal parameters viz.
Revenue Deficit to Gross State Domestic Product (RD/GSDP) and Fiscal Deficit (FD/GSDP) are computed
over each year of the horizon period.

The Tables showing the relevant data for each scenario are presented below:

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 Table 56: Scenario I (RKDP Implemented Over 3 Years)
2019-20 2020-21 2021-22
RKDP Year Wise Expenditure 15.00% 45.00% 40.00%
RKDP Rev. Exp. (Yr. Wise Spread of Rev. Expenditure) 50.00% 30.00% 20.00%
RKDP Cap. Exp. (Yr. Wise Spread of Capex) 40.00% 40.00% 20.00%
Baseline RD/GSDP 1.00% 0.61% 0.78%
Baseline GFD/GSDP 3.00% 3.00% 3.00%
Incremental increase in RD/GSDP Ratio due to Rev. Expenditure 0.08% 0.15% 0.09%
in RKDP
Incremental increase in FD/GSDP Ratio due to Capex in RKDP 0.10% 0.29% 0.13%
Revised FD/GSDP with RKDP 3.18% 3.44% 3.22%

Table 57: Scenario II (RKDP Implemented Over 4 Years)

2019-20 2020-21 2021-22 2022-23

RKDP Year Wise Expenditure 15.00% 25.00% 40.00% 20.00%

RKDP Rev. Exp. (Yr. Wise Spread of Rev. Expenditure) 30.00% 30.00% 30.00% 10.00%
RKDP Cap. Exp. (Yr. Wise Spread of Capex) 25.00% 30.00% 30.00% 15.00%
Baseline RD/GSDP 1.00% 0.61% 0.78% 0.67%
Baseline GFD/GSDP 3.00% 3.00% 3.00% 3.03%
Incremental increase in RD/GSDP Ratio due to Rev. 0.05% 0.09% 0.14% 0.02%
Expenditure in RKDP
Incremental increase in FD/GSDP Ratio due to Capex in 0.06% 0.12% 0.19% 0.05%
RKDP
Revised FD/GSDP with RKDP 3.12% 3.21% 3.33% 3.10%

Table 58: Scenario III (RKDP Implemented Over 5 Years)

2019-20 2020-21 2021-22 2022-23 2023-24

RKDP Year Wise Expenditure 10.00% 20.00% 30.00% 20.00% 10.00%

RKDP Rev. Exp. (Yr. Wise Spread of Rev. 20.00% 30.00% 30.00% 15.00% 5.00%
Expenditure)
RKDP Cap. Exp. (Yr. Wise Spread of Capex) 15.00% 20.00% 25.00% 25.00% 10.00%
Baseline RD/GSDP 1.00% 0.61% 0.78% 0.67% 0.71%
Baseline GFD/GSDP 3.00% 3.00% 3.00% 3.03% 3.05%
Incremental increase in RD/GSDP Ratio due to 0.02% 0.07% 0.11% 0.04% 0.01%
Rev. Expenditure in RKDP

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 Incremental increase in FD/GSDP Ratio due to 0.03% 0.07% 0.14% 0.09% 0.02%
Capex in RKDP
Revised FD/GSDP with RKDP 3.06% 3.15% 3.25% 3.16% 3.08%

Table 59: Scenario IV (RKDP Implemented Over 6 Years)

2019-20 2020-21 2021-22 2022-23 2023-24 2024-25
RKDP Year Wise Expenditure 10.00% 20.00% 20.00% 20.00% 10.00% 20.00%
RKDP Rev. Exp. (Yr. Wise Spread of 30.00% 25.00% 15.00% 15.00% 10.00% 5.00%
Rev. Expenditure)
RKDP Cap. Exp. (Yr. Wise Spread of 15.00% 20.00% 25.00% 20.00% 10.00% 10.00%
Capex)
Baseline RD/GSDP 1.00% 0.61% 0.78% 0.67% 0.71% 0.67%
Baseline GFD/GSDP 3.00% 3.00% 3.00% 3.03% 3.05% 3.08%
Incremental increase in RD/GSDP 0.04% 0.07% 0.04% 0.04% 0.01% 0.01%
Ratio due to Rev. Expenditure in
RKDP
Incremental increase in FD/GSDP 0.03% 0.08% 0.10% 0.08% 0.02% 0.04%
Ratio due to Capex in RKDP
Revised FD/GSDP with RKDP 3.08% 3.15% 3.15% 3.15% 3.09% 3.14%

The Table below shows the maximum FD/GSDP ratio reached because of RKDP. As is obvious, the shorter
the implementation horizon, the higher is the fiscal deficit going to be.

Table 60: Maximum FD/GSDP Ratio due to RKDP

Scenario I II III IV
Expenditure horizon (years) 3 4 5 6
Max FD/GSDP 3.44% 3.33% 3.25% 3.15%
Year in which Max FD/GSDP occurs 2020-21 2021-22 2021-22 2020-21

But what follows from the above analysis is, that under a carefully chosen financing strategy from among
the implementation scenarios analysed, the Gross Fiscal Deficit of the State consequent to RKDP, can be
kept within reasonable bounds.

The following graphs indicate the fiscal position of the State under the four scenarios discussed for
implementation of RKDP.

304
Figure 48: The Fiscal Position of the State under the Four RKDP Implementation Scenarios

305
5.7 Partnership with Development Partners
The State of Kerala has a long history of working with a diverse set of Development Partners. These
partnerships have been of tremendous value for the development of many sectors in the State (Roads
including Rural roads, Water Supply, Skills etc.) A brief outline of the current and active Development
Partners of the State and some of the new partners that could be of immense help to the success of RKDP
are outlined below.

World Bank (WB)

Formed in 1945 and headquartered in Washington D.C., the World Bank Group works in every major area
of development. It is one of the world’s largest sources of development financial and knowledge/technical
assistance for developing countries, and is committed to reducing poverty, increasing shared prosperity,
and promoting sustainable development. The World Bank has been working in Kerala for well over a
decade, and its projects span Hydrology, Coastal Management, Dam Rehabilitation, Cyclone Risk
Mitigation, Water Supply, Sanitation, Power, Urban Services, Transportation, Agriculture, Livelihoods,
Governance, Education, Health and Nutrition, and Forestry. With over 30 projects in the country, the
World Bank has a history of deep engagement with the State.

Asian Development Bank (ADB)

Founded in 1966 and headquartered in Manila, the ADB is dedicated to reducing poverty in Asia and the
Pacific through inclusive economic growth, environmentally sustainable growth, and regional integration.
It aims to do so by providing loans, technical assistance, grants, and equity investments to promote social
and economic development (some sectors of development include infrastructure, health care services,
financial and public administration systems, preparing for the impact of climate change, natural resource
management, etc.) Some of ADB’s prior investments in Kerala include a Skill Acquisition Program for
Schools to increase employability of youth, and Sustainable Urban Development.

KfW (originally Kreditanstalt für Wiederaufbau)

This German government-owned development bank established in 1948 finances and supports programs
and projects that mainly involve public sector players in developing countries and emerging economies –
from conception and execution to monitoring success. KfW’s goal is to help partner countries fight
poverty, maintain peace, protect both the environment and the climate and shape globalization in an
appropriate way. KfW’s work in Kerala includes support to the Water Metro in Kochi, Urban
Transportation, and Smart Cities

Asian Infrastructure Investment Bank (AIIB)

Headquartered in Beijing, AIIB is a multilateral development bank that started operating in 2016 with the
aim of supporting infrastructure development in the Asia-Pacific region. By investing in sustainable
infrastructure and other productive sectors in Asia and beyond, AIIB aims to better connect people,
services and markets that over time will impact the lives of billions and build a better future. AIIB currently
does not have a presence in Kerala.

Housing and Urban Development Corporation Limited (HUDCO)

Founded in 1970, this government owned corporation in India has experience in providing loans for
housing and urban infrastructure projects in India. Borrowers are primarily State Governments and their
agencies. HUDCO has provided loans in Kerala supporting Cochin International Airport, Calicut
International Airport infrastructure, Kerala State Road Transport Corporation, and the purchase of buses
by KSRTC.

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Rural Infrastructure Development Fund from NABARD (RIDF)
The Government of India created the RIDF in the National Bank for Agriculture and Rural Development
(NABARD) in 1996, to provide loans to State and Panchayat bodies for eligible activities in the three
categories of Agriculture and related sector, Social sector and Rural connectivity. RIDF’s work in Kerala
includes Watershed Development, Irrigation, Agriculture and Rural Development, Rural Roads, Rural
Drinking Water, Soil and Water Conservation and Construction of Schools.

NABARD Infrastructure Development Assistance (NIDA)

The Government of India created NIDA within the NABARD in 2010, as a line of credit support for funding
rural infrastructure projects. NIDA is designed to fund State owned institutions/ corporations on both on-
budget as well as off-budget for creation of rural infrastructure outside the ambit of RIDF borrowing. The
assistance under NIDA is available on flexible interest terms with longer repayment period up to 15 years.
Kerala Infrastructure Investment Fund (KIIFB) has availed of funds from NIDA already for financing some
of its infrastructure projects.

Japan International Cooperation Agency (JICA)

This governmental agency coordinates the official development assistance for the government of Japan.
Established in 2013, JICA aims to contribute to the promotion of international cooperation as well as the
sound development of Japanese and global economy by supporting the socioeconomic development,
recovery or economic stability of developing regions. JICA’s work in Kerala includes Water Supply, Non-
Revenue Water Reduction, and Forestry.

Agence Française de Développement (AFD)

AFD funds, supports and accelerates the transitions to a fairer and more sustainable world.
Focusing on climate, biodiversity, peace, education, urban development, health and governance, AFD
teams carry out more than 4,000 projects in France’s overseas departments and territories and other 115
countries. In this way, AFD seeks to contribute to the commitment the French Government to support the
sustainable development goals.

5.8 Need for a Dynamic and Flexible Financing Strategy

The financing needs for RKDP outlined at this stage and reflected in this document is Rs. 36,506.88 crore
(USD.5.25 billion). At this stage, these are only thumb-rule estimates. When the Detailed Project Reports
(DPRs) are prepared, these are naturally bound to change. Furthermore, at the time of actual
procurement of goods and services for the many packages that will finally make up RKDP, the costs are
bound to be even further revised, albeit to a smaller extent. Overall currently, it would be safe to estimate
that the total requirements under RKDP would range between Rs. 35,000 to Rs. 50,000 crore (USD 5-7
billion).
Given the constraints of how much of this substantial requirement, can be accommodated under the
State’s Annual Budget either through EAPs and other loans OR financed under the free available resources
under the Annual Plan, depends on several factors. The stand of GOI would be a crucial determinant of
the State’s overall plan to finance RKDP. Therefore, strategically, it would be good for RKI to devise a plan
of financing with a mix of budgetary and off-budgetary balancing. Needless to say, the preference would
be for budgetary financing of RKDP, given the fact that the institutional and administrative arrangements
for off-budgetary routing of funds for development are more onerous.

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Given these constraints, RKDP implementation should adopt a strategy that is reasonably flexible and
dynamic. It should be one which will evolve over the next two years over which the sources of funds and
the requirement of funds are matched progressively.
What follows below is a conceptual sequence for the implementation of the dynamic strategy envisaged
for RKDP is as follows:
1. Once the RKDP programme document is completed and approved by the High-Level Empowered
Committee (HLEC) chaired by the Chief Secretary, it is then placed before the Council of Ministers for
approval. Simultaneously it is also circulated to the members of the Advisory Council. Once approved,
the proposal is circulated to all potential Development Partners. A broad list of Development Partners
whose support will be enlisted is shown above.
2. Development Partner Conclave: This conclave will be a meeting of all potential development partners
who have extended a helping hand of partnership and support and new development partners who
will be approached for their support for RKDP. The World Bank has been at the forefront in the State
during the last few months offering substantial support in terms of very high-quality resource persons
backed by involved and committed leadership for drawing up the RKDP program document and for
various sector level consultations. The UN Agencies have come together to assist in preparing the
PDNA Report as well as coordinate the whole stakeholder consultations on the preliminary draft of
the RKDP document. As described above, the State has very strong partnerships with several DPs.
Under these partnerships, many projects are in progress and the rest of them have been successfully
completed. ADB, kFW, JICA, among others, are some of the prominent DPS. GoK would look forward
to the World Bank to bring together all DPs and provide leadership to the Development Partner
Conclave.
3. Prior to the Development Partner Conclave, the State Government hopes to initiate discussions with
DPs about RKDP. These initial discussions will be led by the Secretaries of the Departments covered
under RKDP with the support of Principal Secretary and CEO of RKI. During the Development Partner
Conclave, the State Government would seek to get firm support from the DPs as to the areas and
sectors in which they would be interested in collaborating under RKDP and the approximate quantum
of funding that they will extend.
4. The State Government believes that it would be serious opportunity lost to let the 3% borrowing limit
drive the mobilisation of support from DPs. As shown above, GoK will have no doubt to present a
credible argument to GoI as to why this fiscal constraint should not be allowed to weigh down the
RKDP efforts. Therefore, support from all DPs, should be secured to the maximum extent possible
upfront, without being tied down by this constraint. In other words, the emphasis should be on
building partnerships and obtaining commitments from DPs for as many as the components under
RKDP.
5. Once the mapping of the entire RKDP against likely source of funds from DPs is completed, it will be
evident as to what is the extent that must be financed either through the State Budget from its own
free resources and what needs to be financed through off-budgetary mechanisms.
6. A funding table with an indicative structure given below, will have to be progressively filled up and
updated. These will attain a state of finality only with time when project specific requirements in the
various sectors are fully specified and the commitment from Development Partners are firmed up.

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 Table 61: Funding Structure
Fund source and tentative amounts Short term Medium term Long
term
FUNDS ALLOCATED THROUGH THE STATE BUDGET FOR RKDP
State budget
RIDF
World Bank
ADB
KfW
JICA
AFD
FUNDS MOBILISED THROUGH OFF-BUDGETARY CHANNELS FOR RKDP
External Commercial Borrowings
Masala Bonds
US Dollar Bonds
Diaspora bonds
Domestic Bonds
NABARD/HUDCO
Other banks/financial institutions
Total

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 Figure 49: Mapping Development Partner and Sector Financial Sources (illustrating the approach
based on the commitments received from the DPs)

NOTE: Diaspora Bonds (DIAS); Term Loans from Banks (BANKS); State Budget Allocations (STATE); LSG Share (LSG); Crowd
Funding (CRD); and Corporate Social Responsibility (CSR)

5.9 Determining the Quantum of Off-budgetary Financing

Once the total quantum of finance required for implementing RKDP is identified, the scale of RKDP funding
that can be accommodated through the State Budget and the off-budgetary mobilisation of funding
required for meeting the residual portion required for RKDP can be assessed.

Budgetary spending of GoK would depend clearly on the fiscal targets that the State intends to impose on
itself and the period over which it proposes to implement RKDP. In other words, given a fiscal target,
expressed as the Fiscal Deficit to GSDP ratio, the selection of the expenditure horizon, as was discussed
above will be a major determinant of the budgetary and off-budgetary financing that should be set as a
goal under RKDP.

Two fiscal targets viz. one in which FD/GSDP is set as 3% itself and another in which it is relaxed to 3.25%
are taken for analysis. As discussed above, the setting of the fiscal target would firstly, depend on the
relaxation that GoI will be willing to extend to the State for RKDP to help restore Kerala’s economy back
to health and secondly, it would depend on the medium-term fiscal targets that it wants to pursue.

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Fiscal Target of GoK: Fiscal Deficit to GSDP = 3%

I II III IV
Expenditure horizon 3 4 5 6
Off-budgetary funds required (Rs. crore) over the 8353.68 6828.00 4767.97 3830.08
expenditure horizon
% of off-budgetary financing needed for RKDP 24.57% 20.08% 14.02% 11.26%

Fiscal Target of GoK: Fiscal Deficit to GSDP = 3.25%

I II III IV
Expenditure horizon 3 4 5 6
Off-budgetary funds required (Rs. crore) over the 1860.71 944.04 12.17 0.00
expenditure horizon
% of off-budgetary financing needed for RKDP 5.47% 2.78% 0.04% 0.00%

5.10 Execution of Off-budgetary RKDP Projects

1. There is a range of Public Sector Enterprises (PSE) in the State, which operate in many of the
sectors identified under RKDP. They have been created at some point in the State’s
development history, when successive Governments in Kerala saw merit in entrusting specific
functions to them. These agencies differ from one another in their functioning as well as in
their organizational effectiveness and competence. However, these agencies could be one
very powerful channel of deploying off-budgetary funds, if they are adequately prepared and
guided towards this purpose.
2. Off-budgetary borrowing through a State Agency will succeed only if they are backed by
Government Guarantees. The key to the success of fund mobilisation would be these
guarantees, as it is expected that a lion’s share of the requirements under RKDP would be
projects which will not generate self-sustaining revenue flows. Limits on the quantum of
guarantees issued by the Government of Kerala is regulated by The Kerala Ceiling on
Government Guarantees Act, 2003. GoK would have to, where necessary amend the ceiling
limits specified under this legislation to accommodate the borrowing needs under RKDP, from
extra-budgetary sources.
3. An illustrative list of public sector agencies with the sectors in which they operate is shown
below.
Agency Sector
Kerala Agro Industries Corporation Ltd Agriculture
Kerala Land Development Corporation Limited Agriculture
The State Disaster Management Authority (KSDMA) Environment
Kerala State Coastal Area Development Corporation Ltd., (KSCADC) Fisheries

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 Kerala Forest Development Corporation Ltd. (KFDC ) Forest
Kerala Road Fund Board Infrastructure (Roads)
Kerala State Construction Corporation Limited Infrastructure (Buildings)
Roads and Bridges Development Corporation of Kerala Infrastructure (Roads)
Roads and Infrastructure Corporation of Kerala (RICK) Infrastructure (Roads)
Suchitwa Mission Sanitation
Kerala Irrigation Infrastructure Development Corporation Limited Water Resources
Kerala Water Authority (KWA) Water Supply
Kerala Rural Water Supply and Sanitation Agency (Jalanidhi) Water Supply

4. However, many of the above agencies would need further support and capacity
enhancement to take up the role of execution of RKDP projects if they must execute works
of high quality. Such support should be an appropriate mix of the following:
a) Establishing individual Program Management Units within each Public Sector agency
Establish a PMU with adequate high-quality experts in the Sector within the selected PSE
in a given sector. The expenditure for this should be charged to the RKDP budget and met
from Technical Assistance Grants availed from DPs or through the State Budget.
b) Building up internal capacity of the selected Public Sector Agencies
Identify core strength needed within the selected PSE and recruit the necessary personnel
expeditiously. The salary and other operational expenses of these units can be met from
additional grants to these PSEs from the State Budget made specially for RKDP.

5.11 Raising of Off-budgetary Funds for RKDP

1. The important sources for off-budgetary financing are the following:
a) Borrowing from National Institutions like NABARD (NID), HUDCO
b) Term Loans from Banks
c) Domestic Bonds for Infrastructure
d) International Borrowings in the form of:

(i) Dollar Bonds: These are External Commercial Borrowings (ECBs) availed through
Foreign Investment is allowed under the automatic route without prior approval of
the Government or the Reserve Bank of India, in all activities/ sectors as specified in
the Regulation 16 of FEMA 20 (R) or the approval route prescribed by GOI and RBI in
this regard.

(ii) Masala Bonds: Masala Bonds are also a class of ECBs and are rupee-denominated
borrowings issued by Indian entities in overseas markets. The term Masala means

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 spices and the term was used to give an Indianness as well as a distinctiveness for this
financial instrument on international platforms. The objective of Masala Bonds is to
fund infrastructure projects in India, fuel internal growth via borrowings and
internationalise the Indian currency. KIIFB, one of the body corporates set up by GoK
under an Act of the Legislature, has already successfully tapped the international
financial markets for funds.

(iii) Diaspora Bonds: These Bonds are an affordable channel for governments to raise
funds. Diaspora communities tend to remain loyal to their countries of origin. Debt
securities, tailor made for accepting investments from this community, in the
aftermath of natural calamities have the potential of earning a “Patriotic discount”
where citizens of the issuer country feel encouraged to forego some share of the
interest in public interest of rebuilding or restoring their country. Israel has been able
leverage on this sentiment and sell bonds to Jewish investors abroad and succeeded
as result of patriotism. This class of financial instrument can provide much needed
long-term deposits that can be a stable source of currency that can be used for
development projects.
e) Domestic Bonds for Infrastructure

2. Mobilisation of off-budgetary financing can be done through the following options:

Option 1:
The first option is to utilise the services of existing State Government Public Sector Agencies which have
prior experience in raising funds from domestic and international financial markets. A few of such
prominent agencies in Kerala under the administrative control of Government are listed below:
Kerala Financial Corporation (KFC): This corporation is incorporated under the State Financial
Corporations Act of 1951. It has a long history and was established as the Travancore Cochin Financial
Corporation in 1953. Consequent to the reorganization of states on linguistic basis in November 1956,
Kerala State was formed and the Travancore Cochin Financial Corporation was renamed as Kerala
Financial Corporation. It is a trend setter and path breaker in the field of long-term finance, playing a
major role in the development and industrialisation of Kerala. The Corporation is one of the best State
Financial Corporations in the country with a competent tech savvy team of professional at the core of
services. KFC has now diversified and consolidated its operations and has gone into areas like Bill
Discounting for Infrastructure Construction. The agency has a good track record for mobilising
investments from financial institutions as well as floating bonds in the domestic markets.
Kerala State Industrial Development Corporation (KSIDC): KSIDC is the premier agency of the
Government of Kerala, mandated to for industrial and investment promotion in Kerala. Formed in 1961,
KSIDC’s primary objective was to promote, facilitate and finance large and medium scale industries and
catalyse the development of physical and social infrastructure required for industrial growth in the state.
KSIDC acts as a frontline agency of the State in spreading the message of industrial development. Besides,
it is also a flagbearer for Government in its programmes to mobilise investments. KSIDC team includes a
core group of skilled professionals from various fields like Engineering, Management, Finance and Law.
KSIDC has over five decades of proven track record of attracting a commendable volume of investment to

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the State. The agency has a good track record for mobilising investments from financial institutions in
India.
Kerala Industrial Infrastructure Development Corporation (KINFRA): This agency aims at bringing
together all the suitable resources available in the state and developing infrastructure to bolster the
Industrial growth of the state. KINFRA is dedicated to catalysing Industrial growth in Kerala by providing
the best industry-specific-infrastructure. KINFRA has identified over 20 core competency areas and it has
24 well-defined Industrial parks, including those which are currently being operationalized. The Agency
has significant experience in mobilising funds from financial institutions especially Banks.
Kerala Infrastructure Investment Fund Board (KIIFB): The Board, established as a body corporate, came
into existence on 11.11.1999 under the Kerala Infrastructure Investment Fund Act 1999 (Act 4 of 2000) to
manage the Kerala Infrastructure Investment Fund. The main intention of the Fund was to provide
investment for critical and large infrastructure projects in the State of Kerala. Comprehensive modification
of the Act and Scheme has been made through an amendment Ordinance in August 2016. With the new
structure, KIIFB aims to mobilise funds for the infrastructure development of Kerala, adopting a wide
range of financial strategies and tools for this. This also includes addressing major land acquisition needs
of the State for infrastructure. KIIFB is the first State Level Agency in India to successfully complete an
ECB through the issue of a Masala Bond.

Option 2:
The second option will be to decentralise the fund mobilisation function and entrust the agencies
identified in the previous section for execution themselves. Under this option, each of the project
execution agencies under RKDP will be given the responsibility of mobilising a portion of the funds as Term
Loans or Institutional Finance required for RKDP.

Option 3: The third option is a mix of the first two options. The agencies identified under Option 1 will be
given the responsibility of the bulk of the off-budgetary funds required for RKDP, while Public Sector
Agencies which are selected for execution as outlined above, will also participate in the resource
mobilisation efforts by additional borrowing on their balance sheet with Government Guarantees.

5.12 Mode of Deployment of Funds from the State Budget for RKDP
For incurring Capital Expenditure, a sub-head of account 5475-00-115-94 Post-flood Projects under the
Rebuild Kerala Initiative (RKI) – Plan has been opened for providing state funds for capital expenditure
under RKI. Following sub-sub-heads have been opened under the above sub-head. More functional heads
would be created on a requirement basis
 Roads of Local Self Government
 Livelihood support
 PWD Roads and bridges
 Public Buildings – Major repairs and reconstruction
For 2019-20, an amount of Rs.250 crores has been provided in each of the above sub heads, with a total
allocation of Rs.1000 crores for capital spending under RKI.

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For meeting Revenue Expenditure, a sub-head of account 3475-00-115-99 Post-flood Projects under the
Rebuild Kerala Initiative (RKI) – Plan has been opened for providing state funds for revenue expenditure
under RKI. The allocations will be made by Finance Department on a ‘needs’ basis.
The Secretary, Planning and Economic Affairs department is the Controlling Officer of these Heads and
the Chief Executive Officer may be made the Drawing and Disbursing Officer (DDO) for each of the Capital
and Revenue sub Heads mentioned above.

5.12.1 Need based and responsive allocation strategy:

As mentioned above, one of the themes for discussions that is likely to persist through the implementation
is how both RKDP and the implementation of the State’s Annual Plan are likely to compete for resources,
and how this must be harmoniously managed. To some extent this can be ensured by ensuring synergy
between the Annual Plan outlays and the requirements identified under RKDP.
However, to ensure, the optimum use of the budget and the State’s funds are not locked up because of
RKDP, it is desirable that the State institutes an efficient system for making additional budgetary allocation
to correspond to the needs of the implementation process itself. This contrasts with the current system
of making all the required budgetary provisions for any project beforehand.

5.13 Mode of Deployment of Funds Outside the State Budget for RKDP
Where, funds from financial institutions like banks can be availed for RKI through Public Institutions like
KRFB, KIIFB, RBDCK, KSIDC etc., arrangements to disburse funds directly through such agencies should be
made as far as possible. Where such arrangements are not possible, these funds may be placed at the
disposal of the CEO for disbursement of project expenses in a bank account opened for that purpose. The
limits specified above for imprest funds shall apply to this mode also. The CEO shall arrange for separate
projects/package-wise accounting of all funds allocated.

5.13.1 Implementation Arrangements

 RKI is fundamentally different from a traditional rebuilding approach which focuses on restoration of
assets and maintains the status quo both in terms of the processes as well as the larger ecosystem in
which the programs are implemented. RKI seeks to make paradigm shifts in the way in which policies
are formulated and implemented. Emphasis will be on institutional consolidation, coordination and
capacity building. Post RKI, the Government machinery should stand differentiated from what exists
currently in its overall competencies to deal with challenges of natural calamities as well as in its
planning, design and execution of its regular development projects and schemes. Above all, wherever
relevant, the process of policy formulation in sectors related to RKI, the planning, design and
execution cycle should be built on disaster and climate resilience well interwoven into it. While this
transformation may not be immediate, laying a sound foundation for RKI will be a key step to ushering
in this change. Chapter 3 comprehensively brings out the salient features that set apart RKI from
traditional implementation of projects and schemes within government.
 The Government will have overall responsibility for project management and coordination. The RKI-
IC with the RKI-Secretariat will set up a Project Management Unit under it. The RKI-IC, the RKI-
Secretariat will provide overall project insight and policy direction under which, given the multi-modal
nature of the RKDP agenda and the numerous sub-components of the Program.

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 Specifically, the RKI- Secretariat and the Project Management Unit will be responsible for: (a)
providing policy advice and operational guidance; (b) reviewing financial and physical progress; (c)
resolving any implementation problems and addressing grievances, and (d) providing any other
necessary direction for effective implementation, including avoiding any duplication between line
agency interventions instead maximizing mutual gain. It will also process documents for sanctions
and approval of the High-Level Empowered Committee, the Advisory Council and the Council of
Ministers.
 The Project will use existing implementation arrangements of the GoK and all implementation on
ground will be coordinated through the existing Government mechanism.

Given the multi-disciplinary and often complex nature of the packages that must be bundled into RKI, it is
essential that the stakeholder perspective is brought into these institutional arrangements at all levels.
The scale of the disaster, planning required, implementation complexities, financial management and
service delivery calls for a dedicated institutional framework.

The outline of institutional framework proposed for RKI is shown below.

1) Council of Ministers
2) Advisory Council
3) High Level Empowered Committee (HLEC)
4) RKI Implementation Committee (RKI-IC)
5) RKI Secretariat
6) Institutional Support

As referred to above, there will be essentially two types of projects under RKDP. The first will be those
that are financed by funds through the State Budget and the second would those that are financed
through extra-budgetary or off-budgetary mechanisms.
The Implementation and Coordination Arrangements are pictorially shown below for the two
arrangements.

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Figure 50: The Implementation and Coordination Arrangements (State and Off-budgetary Arrangements)

317
Council of Ministers: The Council of Ministers will be responsible for deciding any policy matter including
recommendation for legislation as may be required for effective decision making and co-ordination of RKI.
Project Profiles of all the works taken up under RKI will be placed before the Council of Ministers for
approval. A brief synopsis of the project and regular updates of the progress of RKI projects will be placed
before the council in the next meeting of the council. The Chief Secretary will be the Secretary to the
meetings of the Council of Ministers as laid down in the Rules of Business of Government. To ensure fast
and effective decision making, the agenda notes, minutes and all documents shall be circulated online to
the Hon. Ministers in the Council and the Chief Secretary with intimation through e-mail or other online
forms of communication to the staff of the Ministers.
Advisory Council: RKI will have an Advisory Council not exceeding 20 members with the following
Composition as indicated in Government Order on RKI (Please see Annex-2). The Role of the Advisory
Council is to offer guidance and advise on proposals under RKI and offer inputs on options placed before
it. A draft strategy paper of the Rebuild Kerala Initiative will be submitted to the Advisory Council for its
suggestions and inputs. Project Profiles taken up for implementation under RKI will be sent to all members
of the Advisory Council for inputs and suggestions. The list with synopsis of Projects taken up for
implementation and status update of RKI will be furnished to the Advisory Council from time to time for
information.
High-Level Empowered Committee (HLEC): An HLEC with the composition shown in Annex-3.
Government may from time to time nominate eminent persons as Advisors to the HLEC. The Advisors shall
also be Ex-Officio Members of the Committee for decision making. A senior officer in the rank of not less
than a Secretary to Government or above will be designated as the CEO of the Rebuild Kerala Initiative.
The CEO of RKI is also the Member Secretary for the HLEC. The High-Level Empowered Committee (HLEC)
shall have the following functions:
1. Approval of Project Profiles submitted to it for consideration by the RKI Implementation Committee
(RKI-IC) for placing before the Advisory Council and the Council of Ministers.
2. Direct preparation of any project idea as is found relevant to the overall scheme and objectives of RKI
for placing the same before the Council of Ministers.
3. Approval of Detailed Project Reports prepared by the RKI Implementation Committee (RKI-IC), for the
Project Profiles approved by the Council of Ministers
4. Monitoring the implementation of the various packages/programs under RKI approved by the Council
of Ministers.
5. Coordinating with other departments of Government as is necessary for the smooth implementation
of RKI.
6. Advising Government on mobilisation of resources required for RKI.

Powers of HLEC: For the Project Profiles approved by the Council of Ministers, the HLEC shall be the
authority to issue approvals for Administrative Sanctions for the various DPRs that relate to these Project
Profiles under RKI. In addition,
1. The CEO of RKI shall issue Administrative Sanctions for those DPRs approved by HLEC.
2. Where the Detailed Project Report prepared varies substantially in scope or size from the Project
Profile approved by the Council of Ministers, the HLEC shall issue the Administrative Sanction only
with the approval of the Council of Ministers.
3. The list with details of Administrative Sanctions so issued shall be placed in the following Cabinet
Meeting for information.
4. For administrative purpose (including placing the papers before the Council of Ministers, issue of
Agenda Notes, Minutes etc. related to the Meetings of the Council of Ministers), the Chief Executive

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 Officer of RKI is also designated as a Secretary to Government under the Planning and Economic
Affairs Department as Secretary (Planning & Economic Affairs Department – RKI).
HLEC Decision making: To ensure effectiveness and speed in implementation of RKI, a concurrent online
mode of decision making shall be adopted. Manual process of circulating physical documents shall be
avoided to the extent possible. Under this mode of decision making, the CEO of RKI shall, with the approval
of the Chairman of the HLEC (Chief Secretary), upload as an Agenda item any proposal, that needs
approval of the HLEC to an online portal designed for this purpose, with intimation over email/mobile to
all the members as soon as any proposal is uploaded. The online portal shall have provision for the
Members of the HLEC to enter their comments. Any agenda item where no member has expressed any
remarks to the contrary after 7 days from the date of uploading shall be deemed to have been approved
by the HLEC. The HLEC may if it so decides, meet on a designated day at an interval (weekly, fortnightly
etc.) to be decided collectively. Uploaded agenda items which have not been approved and where
discussions are necessary or where there is a dissent shall be discussed and resolved appropriately. Any
member unable to attend a meeting may also opt to join through any online facility for communication,
made available for the purpose.

RKI Implementation Committee (RKI-IC): The RKI-IC is a three-member body responsible for the
implementation of RKI, with the composition shown in Annex-3. It shall perform the following functions:
1. The RKI-IC shall be responsible for preparing the various project profiles for placing them before the
HLEC for their recommendation and thereafter before the Council of Ministers with the
recommendation of the HLEC for approval.
2. The RKI-IC shall be responsible for preparing the Detailed Project Reports based on project profiles
approved by the Council of Ministers.
3. The RKI-IC shall place the DPRs for the approval of the HLEC.
4. The details of the Administrative Sanctions issued by the CEO for projects and programmes approved
by HLEC with a brief synopsis shall be placed for comments, modifications before the Meeting of the
Council of Ministers.
5. Once the project profiles are approved by the Council of Ministers as the case may be, no further
reference to any Government Department for sanction would be necessary. The projects under RKI
would not have to be placed before the Working Group/Special Working Group envisaged for Plan
Schemes.
6. For the implementation of the packages/programmes in the RKI approved by the Council of Ministers
on the recommendation of the HLEC, the RKI-IC will have powers to implement the project for
procurement according to the guidelines/pattern prescribed and approved by HLEC.
7. The RKI-IC will through a process of empanelment identify qualified consultants (Empanelled
Agencies/Experts/Professionals) for preparation of DPRs, Program Management of Major Projects,
provision of specialised services according to the guidelines/pattern prescribed and approved by
HLEC.
8. For effective implementation of RKI, the RKI-IC may convene joint meetings with the Departmental or
District Committees referred to herein.
9. The RKI-IC will have all incidental administrative powers for projects approved by the HLEC for fulfilling
its responsibilities laid out in this proposal without further reference to Government, but RKI-IC will
function under the Guidance & control of the Chief Secretary.
10. The CEO of the Rebuild Kerala Initiative shall also be the Convener for the RKI-IC.
11. The CEO will administer the day to day running of RKI and be fully responsible for the implementation
of packages approved by the Council of Ministers.

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RKI Secretariat: The Rebuilding Kerala Initiative will have a Secretariat consisting of a team of 3-4
professionals and a team of officers consisting of one Additional Secretary and a Section consisting of one
Section Officer and three Assistants be attached to it under the Planning and Economic Affairs Department
reporting directly to the Principal Secretary (Planning and Economic Affairs Department – RKI). Officers
selected for this purpose from the Secretariat or otherwise, will need to have proficiency in the use of
computers as the document flow for RKI will be managed through online systems only. In addition to the
above, the RKI-IC may induct expert members from various fields as Consultants to RKI as is found
necessary. The CEO shall be the Administrative Head of the RKI Secretariat.
Departmental Level Set-Up for Implementation & Monitoring of RKDP: Different packages under RKI will
be implemented by the Departments/Agencies. Some of these packages relate to asset where the
Departments or its Agencies must execute the work directly. Some of the works packages may have to be
implemented for the departments by an SPV or if any such project is on the Public Private Partnership.
A Departmental Committee consisting of Secretary of the Department, Head of the Department, Head of
the Implementing Agency (if any), and two persons in charge of planning/infrastructure or two or more
Chief Engineers, from the concerned Department, as the case may be, will be constituted. Secretary of
the Department will be the Chairman, and Head of the Department/Chief Engineer shall be the convener.
This Departmental Committee shall work with the RKI-IC to coordinate, monitor and implement the
approved projects.
For ease of implementation, if any variations or deviations from existing practice in terms of procurement
of goods and services, execution of contracts are needed such variations must be approved, after detailed
discussions, in a joint meeting of the RKI-IC and the Departmental Committee referred to above. In
according permission for such variation, care should be taken to ensure that basic principles of fairness
and transparency are not compromised. Such variations or deviations permitted as above have to be
reported to the HLEC.
District Level Set-up for implementation & monitoring of RKDP: A Committee shall be constituted at the
District Level for the implementation and monitoring of RKI with the composition shown in the table
below.
Table 62: Composition of the Departmental Committee
Designation
1. Secretary of the Department Chairman
2. Head of the Department Convenor
3. Chief Engineer nominated for the purpose
4. Two officers of the Department OR two or more Chief engineers under the Members
concerned Administrative Department

5.14 Project Identification and Selection

Typically, there will be a five-stage process for the end to end conversion of an idea into project execution
or process changes. These are:
 Idea generation
 Screening and selection of projects (criteria to be developed)
 Profiling of projects/ideas

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 DPR preparation/Development of legislative framework (e.g. law making, issue of orders,
rules/circulars, manuals etc.)
 Administrative Sanction/Issue of laws/rules/orders/circulars/manuals etc.)
The matrix shown below illustrates the linkages of each of the stages for each channel of idea generation
discussed above with the authority designated for each function.

Table 63: The Matrix of Idea Generation

IDEA GENERATION (SIX TRACKS)

Development Ideathons Idea Identification Identification Other Major
Seminars Exchanges by LSGs by Infrastructural
for Youth Departments Projects
from
Schools,
Colleges,
Polytechnics,
and ITIs

STEP IDENTIFICATION AND SCREENING OF IDEAS FOR PROJECT FORMULATION OR FOR POLICY INITIATION
1 Responsibility: RKI Implementation Committee + Stakeholder Departments

STEP PROFILING OF PROJECT/POLICY INITIATIVE

2 Responsibility: RKI – Implementation Committee

STEP APPROVAL OF DRAFT PROJECT PROFILE/POLICY INITIATIVE

3 Responsibility: High Level Empowered Committee

STEP APPROVAL OF DRAFT PROJECT PROFILE/POLICY INITIATIVE

4 Responsibility: Council of Ministers

STEP PREPARATION OF DRAFT DETAILED PROJECT REPORT (DPR)/DRAFT POLICY FRAMEWORK

5 (LEGISLATION, RULES, GUIDELINES, etc)
Responsibility: RKI Implementation Committee + Stakeholder Departments

STEP APPROVAL OF DRAFT DPR APPROVAL OF DRAFT DPR/DRAFT POLICY FRAMEWORK

6 (LEGISLATION, RULES, GUIDELINES, etc)

Responsibility: High Level Empowered Committee

STEP APPROVAL OF DPR APPROVAL OF POLICY MEASURES (LEGISLATION, RULES, GUIDELINES,

7 etc)

Responsibility: Council of Ministers

STEP PREPARATION OF BID LIAISONING WITH LAW DEPARTMENT/STAKEHOLDER DEPARTMENT

8 DOCUMENTS FOR LEGISLATION/ISSUE OF ORDERS etc.

Responsibility: RKI Implementation Committee + Stakeholder Departments + Law Department

STEP TENDERING + EXECUTION LEGAL ENACTMENTS/RULES/ORDERS/CIRCULARS

9 Responsibility: Stakeholder Responsibility: Law Departments/Stakeholder Departments
Departments
(Implementing Agencies)

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The process flow for implementation of projects under RKI is shown below:

Figure 51: Implementation Flow for RKDP

5.15 Institutional Support Framework

Financial Advisor (FA): Notwithstanding the option adopted to mobilise extra-budgetary funds for RKDP
that is adopted, it would be necessary to ensure smooth operations of the off-budgetary raising funds and
coordinating the release of funds to suit the RKDP cash outflow needs. Therefore, it is proposed that a
financial advisor be appointed, with expertise in national and international fund raising to advise the
institutions selected to mobilise funds from markets.
The FA should be selected through an international bidding process through a two-stage tendering
process as per procurement standards of the World Bank and other DPs to ensure that the State will
obtain financial services of the highest quality for RKDP.
Procurement Services Manager (PSM): The Rebuild Kerala Initiative is expected to be diverse in its scope
and as such there will be several stages of implementation from planning, drawing up of concept paper,
preparation of DPRs, drawing up of estimates, preparation of tender documents, environmental surveys
and analysis including social impact assessments, work involved for land acquisition, drawing up
compensation packages etc. Furthermore, many of these projects will call for international expertise and
may require global tendering.

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Based on the above rationale, the procurement of goods and services needed for the range of activities
envisaged in RKI will pose a formidable challenge. It would be therefore efficient to contract out all
procurement needed for RKI to a specialised firm. This would ensure that services are procured with
greater efficiency and meet clients’ needs faster while adhering to international best procurement
practices regarding transparency, objectivity, competitiveness and non-discrimination. The firm selected
would be the Procurement Services Manager (PSM) for RKI. It will be selected through an international
tendering process using a two-bid system.
The PSM function includes:
1. Assisting the RKI Secretariat and End User Departments/Agencies in planning inputs and drafting ToRs
for procurement of goods and services.
2. Based on the agreed work plan, identifying and selecting qualified experts, companies and institutions
to provide the agreed inputs and proposing them to the RKI Secretariat.
3. Preparing Tender Documents for the various packages required under RKI.
4. Contract Management including checking and certification of bills for payment.
5. Developing and regularly updating appropriate procurement systems and procedures to reflect
international best practices.

Third Party Auditor (TPA): In the context of the diverse financing arrangement and the payment process
that must be managed, a Third-Party Audit performed by an audit organization that is independent of the
Government of Kerala will potentially help to improve transparency and enhance trust of funding
agencies. Such an audit can be by design, free of any conflict of interest if safeguards are built in to ensure
the independence of the audit organization. A TPA with the expertise of handling major
infrastructure/public projects with international experience can be identified through a transparent
bidding process.
Capacity Building for Departments and Special Purpose Vehicles: Additional support to governmental
entities will be provided under the project in the form of training for operations and maintenance, disaster
risk management activities, institutional capacity building, information management etc. will also
strengthen the capacity of these groups to improve and ensure sustainability of workfare and
management of potential future disasters. Support will be provided by international donor agencies,
multi-lateral partners, and think/do tanks like IDFC Institute.

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 Monitoring and Evaluation of RKDP

6.1 Background and Rationale

The RKDP presents a roadmap for a Nava Keralam. To do so, it encompasses key sectors of the economy
such as agriculture, animal husbandry, fisheries, forestry, land, livelihoods, roads and bridges,
transportation, urban services and infrastructure, water supply and sanitation, and water resources
management. Further, binding the key sectors together, the RKDP also addresses cross-cutting priorities,
among them, climate change and disaster risk management, environment, open data and public sector
strengthening. With the multitude of interventions and sectors involved in this roadmap, it is imperative
to institute a robust monitoring and evaluation (M&E) mechanism from an early stage.
The need for such a comprehensive and effective M&E system is driven by the following:
 As a direct response to the floods of 2018, through the RKDP the Government “envisions a green and
resilient Kerala where higher and ecologically safe standards of infrastructure, improved conditions of
living and new major development projects ensure that people and assets are able to withstand the
onslaught of future disasters”. [G.O.(P)No.16/2018/P&EA]. A rigorous monitoring and assessment is
essential to ensure that the objective of rebuilding a Green and Resilient Kerala is achieved through
the ambitious goals of the RKDP.
 Public consultations held by the GoK on the RKDP have created a partnership. The Government is
accountable to the public and their expectations that the Programme will “enable Kerala’s resilient
recovery and catalyse transformational shift towards risk-informed socio-economic development
through supporting sustainable communities, institutions, livelihoods and putting in place major
infrastructure”. [G.O.(P)No.16/2018/P&EA]
 Public and private resources (including national, state, multilateral and bilateral development
partners, and market-based and community-based funds) will be used to implement the RKDP. Care
should be taken to ensure efficiency and transparency in the implementation through clear processes
of accountability. This structure will support the efficient use of financial resources.
 There is strong commitment, both from the administration and politically, to the aims of RKDP.
Therefore, progress must be regularly assessed to mitigate any reputational risk and pre-emptively
course-correct through identifying and addressing underperforming projects.
 Given the multi-sectoral nature of RKDP it is critical that M&E incorporate the necessary legal and
institutional structure to facilitate collaboration and coordination among institutions.
Consequentially, M&E will review processes, policies, programs and projects related to reforms.
 The success of the RKDP will depend on an effective M&E mechanism that regularly assesses original
conditions, versus progress made, versus target goals.

6.2 Monitoring and Evaluation Framework

A M&E cell will be established in the RKI Secretariat, which will be responsible for the overall monitoring
of physical and financial progress, and key outputs and outcomes, as per RKI's agreed results framework.
Key Programme-level indicators for M&E are organized along the following framework:

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 Table 64: Monitoring and Evaluation Framework

Process Outputs Outcomes

(e.g. 6-monthly (e.g. Master plans, new (e.g. better performance,
progress reports, management systems, reskilling, population
new protocols, new infrastructure built, benefitted, efficiency
structures, etc.) studies, mapping, analysis, gained, livelihoods
etc. protected, etc.)

Policy
Interventions
Indicators and targets to be defined,
Institutional that will become the basis of the
Interventions Monitoring and Evaluation framework.
Investment
Interventions

 An independent agency or consultant will be appointed by RKI to develop a web-based monitoring

system that will be maintained at the RKI Secretariat. Information on results, complied from the
Management Information System (MIS), will be disseminated publicly on the RKI webpage on a semi-
annual basis, providing user-friendly information.
 Monitoring will be done at various levels, depending on the type of intervention or activity:
project/activity, community, district, and local government, line departments, etc. against agreed
performance benchmarks and results indicators. The MIS mechanism will be responsible for
aggregating the information and producing half yearly progress reports to be submitted to the
supervising committees. Monitoring, where relevant, will be undertaken in a gender disaggregated
manner that will allow assessment of issues related to inclusion.
 An independent agency or consultant will be appointed by RKI to track results, including establishing
baselines and tracking progress on a regular basis. At the end of the Programme period, an
independent agency or consultant will undertake an evaluation of the RKDP.
 Third party audits of procurement and contracts and social/community audits or surveys of
beneficiary satisfaction will be conducted in a random fashion throughout the life of the project. These
audits will particular attention to the impacts on women, children, differently abled and the SC/STs.
 Finally, a grievance mechanism will also be established as a separate and parallel unit to RKI with a
web-enabled mechanism for filing and addressing any complaints related to RKI implementation
processes and beneficiaries. This mechanism will encourage feedback from the public, departments,
government, and any other stakeholders. A protocol for addressing grievances will be published.

6.3 Institutional Arrangements and Implementation

The M&E structure will effectively scrutinize the objectives, policies, programs and targets of the
Programme during implementation. The RKI Secretariat will act as the coordinating agency for Kerala’s
reconstruction efforts to build ecological, technical and social safeguards through M&E. The RKI will play

325
a central role in the coordination, oversight, and M&E of the progress of the recovery. The institutional
arrangements for M&E will be as follows:
 Communities/NGOs/civil society entities: inputs into programme design, feedback on outputs and
outcomes;
 Individual departments/agencies: process and output monitoring of progress on physical, financial
and institutional indicators associated with each participating department or agency;
 RKI: overall process, output and outcome monitoring, as well as impact assessments in target areas
of the RKDP;
 HLEC: technical oversight and review of half yearly progress reports and the M&E results, guidance on
Programme improvements, administrative decisions on Programme implementation, actions and
course corrections;
 Advisory Council: high level review and guidance on half yearly progress reports, Programme
implementation, actions and course corrections; and
 Council of Ministers: review of routine progress, outputs and outcomes, guidance on all Programme
M&E, final decisions on Programme implementation, actions and course corrections, per progress and
M&E reports.

The HLEC will serve to monitor and evaluate the implementation of the RKDP and the performance of the
RKI. It will be chaired by the Chief Secretary, convened by the RKI CEO and consist of the RKI Secretariat,
the representatives of the concerned departments and agencies and technical experts. The secretarial
services of the Committee will be carried out by the RKI Secretariat. The HLEC will convene every six
months and, additionally, as frequently as required. It will be responsible for evaluating the Plan
implementation, monitoring developments regarding objectives, steering programming and budgeting
activities, reviewing Annual Programme Progress Reports, recommending them to the Chief
Minister/Cabinet as well as ensuring the preparation of Programme Evaluation Reports. These Reports
will be shared with the the Advisory Council and the Council of Ministers for review. A schematic of this
monitoring feedback loop of responsibilities, reporting, and review is presented in the Figure below.

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 Figure 52: Institutional Arrangements for Monitoring and Evaluation

Responsibilities and
Accountabilities

- Review and approve progress

report.
- Advise downward.

- Private Sector, NGOs, and other

Stakeholder input incorporated

- Advice on RKI’s progress reports

on entire RKDP. Guidance on
resource mobilization

- Vetting proposals that are cleared

by cabinet

- Public input gathered by RKI and

incorporated into progress report
(regularly made public)

- Compile and review RKDP 6-

monthly progress reports based
on each Line Secretary report.
- Hold Secretaries accountable for
incorporating public / Council
feedback

- Compile M&E report to RKI every

6 months.
Programme Monitoring and Steering Committee
- Update implementation plans on
Responsibilities: Convene as required, min. every six months. Evaluate implementation, the basis of RKI feedback.
monitor developments regarding objectives, steer programming and budgeting
activities, review Annual Programme Progress Reports, recommend them to the Chief - Data gather, monitoring project
Minister/Cabinet, and ensure preparation of Programme Evaluation Reports implementation
- Report upwards to Secretary
every 3 months

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6.4 Results Framework/Key Performance Indicators

The following is the draft Results Framework for the RKDP implemented through the RKI. The Results and
the Performance Indicators noted below are a suggested draft at this stage. Following the launch of the
RKDP, a firm will be recruited to finalize the Results Framework, establish baselines and support the RKI
and other stakeholders in setting up RKDP-related results monitoring arrangements.

Table 65: Result and Performance Indicators Framework

RESULTS FRAMEWORK PERFORMANCE INDICATORS

Outcome 1: Enhanced institutional and financial capacity for managing disaster risk and climate change
through RKDP

Result Baseline 2020 2021 2022 2023

Six-monthly progress reports are submitted

on RKDP implementation within 60-days of
each six-month period.

A programme evaluation is prepared within

3-months of completion of RKDP programme
period.

At least 25% of infrastructure is rebuilt

following build-back-better principles.

At least ₹21,000 crore is mobilized for

recovery and reconstruction.

A Flood Cess on GST is issued to mobilize at

least ₹1000 crore.

A masala bond is issued to mobilize at least

₹3000 for recovery and reconstruction.

A diaspora bond is issued to mobilize at least

₹2000 for recovery and reconstruction

At least ₹3500 crore of RKDP programs

benefit poor communities or households
directly

At least 1,000,000 women and children

benefit from RKDP programs

Outcome 2: Enhanced institutional and financial capacity for managing Disaster Risk and Climate Change

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RESULTS FRAMEWORK PERFORMANCE INDICATORS

The State Disaster Management Plan,

incorporating disaster risk reduction and
climate resilience principles, policies and
standards, is updated and published

New protocols for enhancing emergency

preparedness and response capacity of
various departments are established and
made fully operational

XX emergency response centers are

established and operationalized at the
district level

Outcome 3: Critical infrastructure and services recovered/restored across Water Resource

Management sector

RBM Act is approved and RBM Authority is

established and operational.

State Level Command Centre for integrated

and effective coordination of reservoir
operations of all dams in the State is
established.

River Basin Management Authority is

developed and approved water resource
management strategy for Kerala.

River Basin Management Authority has

developed and implemented river basin
management plans for Kuttanad and Kole
floodplains.

Integrated basin plans are prepared for

priority basins.

XXX kilometers of irrigation works are

completed from ongoing irrigation projects.

XXX kilometers of community micro

irrigation system are completed.

XXX kms of irrigation structures are restored

of flood damages.

Outcome 4: Critical infrastructure and services recovered/restored across Water Supply and Sanitation
sector

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RESULTS FRAMEWORK PERFORMANCE INDICATORS

New policy and institutional framework for

improved water supply services are adopted.

Annual Performance Report and Citizen

Report Cards are publicly disclosed by KWA.

Kerala’s State Sanitation and Waste

Management Programme adopted by the
GoK.

XXX kms of drinking and bulk water

distributions are established.

XXX new household piped water connections

are provided.

XXX households of vulnerable communities

such as women headed households, SC/ST,
fisher-folk and disabled are provided better
access to water services and sanitation

XXX kms of infrastructure established for

collection, treatment, and disposal of
sewerage

Non-Revenue Water reduced to at least 35%

in three city corporations (Trivandrum, Kochi
and Kozihkode)

O&M cost recovery increased to at least 50%

at state level

Outcome 5: Critical infrastructure and services recovered/restored across Agriculture sector

Agroecological zones are notified along with

agroecological management units.

Capital investment and action plans

developed and implemented for at least two
agroecological zones.

Agriculture minimum support pricing policy

is revised and made operational.

“Agriculture 4.0” ICT-GIS-based Decision

Support System (DSS) is developed for
evidence-based, data-driven development
in agriculture.

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RESULTS FRAMEWORK PERFORMANCE INDICATORS

Agriculture value chains are established for

at least two crops, including strategic plans
for agro-marketing.

Agriculture risk insurance uptake is

expanded to at least xx%.

XXX soil health and advisory clinics

established.

XXX acres of flood affected plantations

rejuvenated.

Outcome 6: Critical infrastructure and services recovered/restored across Roads and Bridges sector

Core road network standards are adopted,

and core road network is notified.

State Road Transport Strategy/Master Plan

developed by PWD, to address institutional
and resource fragmentation

Priority road works are completed for at

least XXX kms of state highways, major
district roads and other priority roads to
new standards.

Road Maintenance Management System

(RMMS) is developed and made fully
operational by PWD

Performance based contracting is

introduced for 25% of the core road
network design, construction and
maintenance.

Outcome 7: Critical infrastructure and services recovered/restored across Transportation sector

Transport Sector Reform Group is set up in

the Transport Secretariat that includes multi-
modal issues.

Modify and approve the Kerala Metropolitan

Transport Authority Bill. Kerala Metropolitan
Transport Authority formed and upgraded

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RESULTS FRAMEWORK PERFORMANCE INDICATORS
using the Unified Metropolitan Transport
Authority upgradation as a model.

XXX Transport Department officials are

reskilled with the latest transportation
developments.

Comprehensive Transportation Strategy/

Master Plan developed by xxx on the
development potential of an integrated
multi-modal transport system.

Analytical plans of high-speed corridor

developed, as a detailed investigation of
need and feasibility. Supplementary
conceptual plans based on 10-year
projection developed.

Operationalize XXX schemes for Intelligent

Transport Management Systems

Action plan prepared for enhancing public

bus Transport on State Road network with
focus route rationalization, bus contracting
models for inter-city operations, transport
tax reforms, public transportation subsidies,
and dealing with urban congestion

XXX schemes analysed and identified as

pilot cases for implementing Land Value
Capture as revenue generation for public
transportation investments

Outcome 8: Critical infrastructure and services recovered/restored across Urban sector

Decentralized Plan Guidelines are revised to

reduce fund fragmentation and facilitate
multi-year project planning by LSGIs.

Municipal cadre structure is revised and

notified to improve capacity of ULB to
deliver services.

Municipal Infrastructure Manual is

developed and approved to improve the
quality and resilience of municipal
infrastructure.

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RESULTS FRAMEWORK PERFORMANCE INDICATORS

Town and Planning Country Act is amended

to include risk-informed master planning.

Capital Investment Plans are developed by

at least XXX ULBs.

GIS based risk informed master plans are

prepared by XXX cities.

₹XXX crore investments are undertaken in

municipal infrastructure by ULBs.

Outcome 9: Critical infrastructure and services recovered/restored across Forestry sector

Field units of Forest Department are

realigned with Revenue Administration
boundaries.

An inter-sector working group on slope

protection is established.

XXX Local Action Plans for Climate Change

(LAPCC) are developed and implemented.

600 individuals from VSSs and EDCs are

trained on vulnerability reduction and
LAPCC.

XXX management action plans prepared for

ecologically sensitive zones around
Protected Areas.

Habitat improvement of 20,000 ha is

undertaken.

XXX abandoned/illegal mines and quarries

near forest are rehabilitated.

Voluntary relocation of critically located

human habitations is completed for 640 ha.

Outcome 10: Critical infrastructure and services recovered/restored across Animal Husbandry and
Livestock sector

Animal Husbandry Department restructured,

functional efficiency improved by x%

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RESULTS FRAMEWORK PERFORMANCE INDICATORS

XXX schemes implemented incentivizing

responsible livestock management practices,
including biowaste management and animal
carcass disposal, farming off-season duck
rearing, etc.

XXX VPCs are established in taluks without

VPCs

XXX livestock are geo-tagged for real-time

monitoring of movement, traceability of
produce, disease outbreaks, vaccination,
health, etc.

XXX modern abattoirs are established in key

centers.

Outcome 11: Critical infrastructure and services recovered/restored across Livelihoods sector

Policy framework is developed and adopted

for leased land farming to help the farmers
on leased land be resilient to future
disasters.

'Responsible Tourism' policy framework

updated to account for disaster and climate
risks.

Crisis Management Fund (CMF) is

established and made functional for micro-
entrepreneurs and women JLGs engaged in
leased land farming.

Comprehensive ICT/MIS systems are

established to track producers/artisans/
Kudumbashree entrepreneurs to improve
targeting of support services and provide
proactive support.

MRCs are established at Southern, Central

and Northern regions to assist
microenterprises in services such as packing,
branding, quality assurance, appropriate
technology, procurement and marketing
support

XXX households of the most vulnerable

communities such as SC/ST, fisher-folk and

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RESULTS FRAMEWORK PERFORMANCE INDICATORS
disabled are provided grants to address loss
of livelihoods and livelihood.

XXX women, youth and SC/ST are provided

with skill upgradation training.

Outcome 12: Critical infrastructure and services recovered/restored across Land sector

Kerala Land Administration and

Management Act is adopted for a unified
land register and cadastre system.

Kerala Land Records Mission is

operationalized, unifying and modernizing
the land records and registry map work of
the State.

XXX land records are digitized.

Outcome 13: Critical infrastructure and services recovered/restored across Fisheries sector

Deep sea fishing policy is formulated and

adopted.

XXX Matsyabhavans are modernised with e-

governance, man power allocation etc.

Disease surveillance and control laboratory

is established for tracking of diseases.

XXX fish multiplication centres for marine

and fresh water fishes are established for
providing good quality advanced fingerling
to the benefactors.

XXX ha of brackish water, resevoir, other

water bodies are utilised for growing fish in
cages.

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ANNEXURE

Annex-1: DRAFT Detailed Investment Programme

Immediate recovery, reconstruction and long-term resilience building efforts, post disaster is critical in
poverty reduction and recovery of losses. Similarly, investments for adoption of higher standards towards
rehabilitation and reconstruction, with technical safeguards is more important than rebuilding for the
sake of recovery. In this context, inclusive development for shared prosperity is the underlying principle
adopted by RKDP. All priority programme and reforms are to be implemented with resilient features as
the overarching umbrella to ensure that infrastructure, assets and livelihoods of the people of Kerala
become less vulnerable to future shocks and disasters.
Having said so, the above could only be achieved with substantive investments in critical sectors such as
roads, Water resources management, urban and rural infrastructure, land use planning and management,
agriculture, etc. to name a few – to reignite the economy of the State. While the details of the overall
financial requirements are detailed in the table later, the brief note on activities proposed for investments
in these sectors are given below:

Highways
Core Road Networks: Rehabilitation /reconstruction/improvements of key carriage ways totalling to
approximately 6,000 kms across the State i.e. a combination of state highways and major district roads
have been identified as Core Roads Network including those affected by the floods. The prioritization of
core road network will be broadly based on but not limited to economic importance, connectivity to
growth centres, strategically important corridors, traffic volumes, share of commercial vehicles, public
transport routes, access routes during emergencies, trunk access roads to schools, hospitals, and
transport terminals/hubs, etc.
These investments are expected to contribute to more efficient emergency response and rapid
restoration of core road network which is critical for transportation of emergency goods, materials, and
ambulances in times of disaster. These efforts will also be complimented with systems and to support
strategic investment decision making, efficient resource allocation and asset management through
application of performance contracts for 10 years to ensure quality in design and construction by
contractors.

Rural Infrastructure:
Rural Roads: Reconstruction and Rehabilitation of 330 roads which are major link roads with resilience
features to address climate changes and increasing traffic volumes in 8 flood affected districts of
Alappuzha, Ernakulam, Idukki, Kottayam, Palakkad, Pathinamthita, Thrissur, & Wayanad. Application of
similar criteria for roads in other districts is being evaluated and documented. Hence, investments in the
medium and long term are cited as “To Be Decided (TBD)” in the table below.
To enhance resilience and longevity of the roads, PMGSY standards will be strictly applied in the design
and construction, with performance contracts having 4-5 years maintenance period, to improve quality
of the road constructed and accountability of the contractors. Introduction of long-term O&M contracts
is envisaged to move away from the traditionally fragmented and annual contracting processes followed
by Local Bodies.
Rural Water Supply – The focus of the investments proposed is to move towards providing reliable
potable drinking water supply, through large infrastructure and community managed operations to

336
facilitate and introduce new avenues for revenue generation for long-term sustainability of operations
and investments, in the Gram Panchayats across the 14 districts in Kerala, currently not fully covered
piped water supply (PWS). Focus towards improving and linking local resources to provide for optimum
utilization of both physical and financial resources is included to encourage community led operation and
maintenance of water supply systems. Critical inputs to both existing operations and those proposed
includes investments to improve and monitor quality of drinking water from both supplies and own
sources to support reduction and elimination of emergence of any potential water borne diseases, and
reduction in non -revenue water.
Additional investment proposed is to facilitate revenue generation through productive use of nearly 200
acres of land available across various KWA installations, to generate power (40MW of solar power) for
both utility operations and supply of excess power to power production/distribution companies for
onward sale of the same.

Urban Infrastructure
Urban roads: Reconstruction and Rehabilitation of 305.2 kms of urban roads using PMGSY standards
covering 8 flood affected Municipalities of Wayanad, Pathinamthita, Idukki, Kottayam Alappuzha &
Ernakulam. These are major link roads within the cities and are critical to the local economy. Again, 4-5
years of performance-based O&M contracts will be undertaken. Long term upgradation of all urban roads
is being prepared. Hence, investments in the medium and long term are cited as ‘TBD”.
Urban Water Supply – Investments proposed water supply in urban areas are for supply potable drinking
water (piped household connections) to 19,664,430 population, spread across larger municipalities and
their urban sprawl in the 14 districts. It is also proposed to establish 24x7 water supply to households in
the municipal corporation areas of Trivandrum and Kochi to benefit population of 1,265,000 in the next
three years, while the same would be installed and made operational in other municipalities progressively
over the period of 5-7 years to benefit population of approximately 11,865,000 in these areas.
Urban & Rural Sanitation: Another key investment in the rural and urban sector is sanitation. Proposals
under consideration includes establishment of sewerage and septage treatment plants (STPs) in the major
municipal corporations/municipalities across Kerala to ensure safe disposal of waste water and septage.
Sewerage and septage generated in these municipalities, their urban sprawl area consisting of over 13
million population and about 5 million rural population in the areas within a radius of 50 kms, will be
treated and disposed safely. These facilities will be further supported for efficient utilization of their
capacities through establishment of systems for collection and disposal of septage from individual
households/ small commercial establishments thereby to reduce / pollution of local water resources and
maintaining clean environment in both urban and rural areas.
Water Resources Management: Proposed investments are directed toward sustainable water
conservation & rejuvenation of water bodies and storage structures to store flood waters and recharge
depleting groundwater table in all districts in the State. Investments will be based on scientific data based
and judicious utilization of water resources and energy to reduce water consumption by at least 25% with
a target of achieving 50% over a period of 5-7 years. Further, irrigation infrastructure needing investments
will be designed and established based on a interlinked grid basis within each basin to ensure access and
allocation of water to all users viz – agriculture, drinking water, industries and other utilities, are strictly
need based for optimum utilization of water and improve operational efficiency of storage facilities in the
State.
The objective is to achieve increased crop yield per hectare by an average of at least 25-30% (depending
on the soil conditions and crops planted) with lesser water consumption and facilitate movement towards
sustainable multi-cropping practices, meet irrigation needs in the rain shadow belt, power generation,

337
and drinking water needs, repair and restoration of irrigation structures/assets damaged by the floods in
the State.
Land management systems: The investments proposed for land revenue consolidation is primarily to
support establishment of a platform and related networks and systems to digitize records and processes
by unifying title deeds registry, record of rights, field books and maps, land registration processes,
cadastral mapping, etc. and related physical infrastructure to secure the system and physical records, to
facilitate land administration, zoning and development activities.

Agriculture and Animal Husbandry:

Agriculture: The objective is to support realignment of department operations at ground level in
accordance with the reorganized 5 agro-ecological zones to serve the sector better. Proposed investments
are for bringing in significant changes in efficiency and resilience to the sector by supporting targeted
resource allocation (including input subsidies), inputs, extension services, market development,
mechanization, water management etc., relevant farming systems land use planning, soil quality
monitoring, mapping suitable crop varieties to enhance production to achieve increased crop yield, and
production clusters for improved market development and trade integration;; recasting agro-insurance
and agro-credit policies to enhance coverage with inclusiveness. Other supporting investments includes
establishment of ICT based management systems to improve productivity of the staff operations to
provide end-to-end services to the farmers and markets.
Animal Husbandry: Key Investments proposed are to ensure last mile service delivery of animal health
care services for disease prevention and monitoring systems of livestock to enhance production and
quality of both dairy and other by-products. Other investments include establishment of district level
hygienic
Table 66: Sectoral Financial Requirement

Sector Implementing Investments required in Rs. Total in Rs.

agency crore crore

Short Medium Long

term term term

Rural Roads. LSGD 247.94 247.94

Urban roads 86.90 86.90

Roads in Municipal Municipal Corporations 7.53 7.53

Corporations areas

State Highways & key Public Works 986.62 295.20 717.80 1,999.62
feeder roads Department

Water Resources Water Resources 435.00 2,036.89 2,100.00 4,571.89

Management - Department

Rural Water Supply Kerala Water Authority 470.00 9,488.00 9,958.00

338
Urban Water Supply Kerala Water Authority 3,584.00 1,495.00 4,300.00 9,379.00

24x7 water supply in KWA+ Municipal 555.00 2,235.00 2,790.00

Municipal Corporations
corporation areas

Revenue Land Land Commissioner 100.00 100.00 200.00

consolidation

Urban Sanitation KWA+ LSGIs 356.00 1,479.00 1,835.00

Urban & Rural KWA+ LSGIs 746.40 2,985.60 3,732.00

Sanitation -

Agriculture Dept. of Agriculture 1,035.00 665.00 1,700.00

Animal Husbandry Dept of AH 199.00 199.00

Grand Total 8,809.39 20,779.69 7,117.80 36,706.88

339
 Table 67: Detailed Sector-wise Investment Plan
Sector Brief Description: Department Objective (Limited to Estimated Timeline for Timeline for
Project/Investment RKDP) Outlay in Preparation Implementation
(including key Rs. crore
components/elements)

Rural Roads Reconstruction and LSGD - Gram Resilient Recovery of the 247.94 June 2019 to November 2019
Rehabilitation of LSGD Panchayats LSGD's major link roads June 2020 to December
Roads using PMGSY under Gram Panchayats in 2021 + 4 years
standards covering 8 the districts of Alapuzzha, Maintenance
Districts. Construction Ernakulam, Idukki,
contracts shall have 4-year Kottayam, Pallakad,
maintenance period. Pathanamithitta, Thrissur,
& Wyanad - 330 roads
Urban Roads Reconstruction and LSGD -Urban Resilient Recovery of 86.90 June 2019 to November 2019
Rehabilitation of LSGD Local Bodies theLSGD's major link June 2020 to December
Roads using PMGSY (ULBs) roads in the municipalities 2021 + 4 years
standards covering 7 of Wyanad, Maintenance
Municipalities. Pathinamthitta, Idukki,
Construction contracts Kottayam Alapuzzha &
shall have 4-year Ernakulam - 254 kms
maintenance period.
Corporation Roads Reconstruction and LSGD - Resilient Recovery of the 7.53 June 2019 to November 2019
Rehabilitation of LSGD Thrissur LSGD's major link roads in March 2020 to March 2021 +
Roads using PMGSY Municipality the municipality of 4 years
standards covering 1 Thrissur - 51.24 kms Maintenance
Municipal Corporation.
Construction contracts
shall have 4 year
maintenance period.
Total- A 342.37
Completing the Water To diverting waters of 150.00 June 2019 to April 2020 to
Water Resources Idamalayar Irrigation Resources Periyar River for irrigating April 2020 December 2024
Management Project including the Department cultivable land (i.e.
construction of Link Canal approx. 29,036 ha) in
Periyar and Chalakudy

340
Sector Brief Description: Department Objective (Limited to Estimated Timeline for Timeline for
Project/Investment RKDP) Outlay in Preparation Implementation
(including key Rs. crore
components/elements)

and Branch of Low level basin area in the districts

canal of Ernakulam, Idukki, &
Thrissur. Work to be
designed after detailed
technical study
Completion of ongoing WRD Improve irrigation 50.00 April 2019 to January 2020 to
original works of facilities to Increase in January 2020 February 2021
Muvattupuzha Valley agricultural production in
Irrigation Project 35,619 ha in the districts
of Ernakulam and Idukki
Completion of remaining WRD Improve irrigation 125.00 April 2019 to January 2020 to
canal works undertaken in facilities to Increase in January 2020 February 2021
Banasura Sagar Project agricultural production in
3,825 ha in Wayanad
District
Completion of remaining WRD Improve irrigation 110.00 April 2019 to January 2020 to
works in Karapuzha facilities to Increase in January 2020 February 2021
Irrigation Project agricultural production in
8,721 ha in Wayanad
District
Providing community WRD Savings in water and 150.00 June 2019 to April 2020 to
micro irrigation system energy. Increased crop April 2020 December 2022
through Minor, & Major yield of xxxx hectres /per
irrigation schemes croping season in al
including lift irrigation districts
schemes
IWRM Based solution for WRD Sustainable development 403.89 June 2019 to November 2019
eco system restoration of of the area by scientific April 2021 to December
rain shadow belts in and judicious utilization of 2023
Palakkad district natural resources.
Increased cropping area
by xxx ha and crop yield

341
Sector Brief Description: Department Objective (Limited to Estimated Timeline for Timeline for
Project/Investment RKDP) Outlay in Preparation Implementation
(including key Rs. crore
components/elements)

by xxx % shifting to
multicropping practice for
crops eg.
Xxxxx,xxxxxx,xxxx, to
reduce water
consumption in Palakad
district
Sustainable Water WRD Sustainable water 1,100.00 June 2019 to January 2020 to
Conservation by conservation & December July 2026
interlinking of ponds and rejuvenation of water 2020
traditional storage bodies and storage
structures structures to store flood
waters and recharge
depleting Groundwater
table in all districts in the
State.
Implementation of WRD Various activities for 1,000.00 April 2019 to January 2020 to
prioritized projects development of September December 2025
proposed under various sustainable water shed 2020
watershed masterplans Interventions in all
districts to improve water
resources management
Rectification/restoration WRD Repair and restoration of 1,483.00 January 2019 May 2019 to May
of damages occurred to irrigation to 2023
irrigation struct structures/assets Septemmber
ions/assets during floods damaged by the Floods in 2019
of August 2018 August 2019
Total - B 4,571.89

342
 Sector Brief Description: Department Objective (Limited to Estimated Timeline for Timeline for
Project/Investment RKDP) Outlay in Preparation Implementation
(including key Rs. crore
components/elements)

Bulk Supply facilities KWA Supply potable drinking 5,637.00 April 2019 to May 2019 to
Rural Water Supply completed. Establishment water to 5,488,072 January 2020 March 2022
of Drinking water population in the Gram
distribution networks and Panchayats of Kovalam,
household connections Neyattinkara, Parassala,
Pathanabapuram,
Aruvikkara, Vamanapura,
hdayamangala, Punalur,
Kottarakara, Kundara,
Chattannooor,PaKunnath
ur, Thiruvalla, Ranni,
Chenganoor, Kanjirapally,
Poonjar, KAduthuruthy,
Vaikoam, Kunnamkulum,
Aranmula. Konni,
Alappuzha, Ettunmanoor,
Vaikom, Thodupuzha,
Udumbanchola, Kochi,
Thrithala, Pattambi,
Kondotty, Perithalmanna,
Dharmadam,
Kuthuparamba, Irikkur,
Kalliasherry, Kasargod,
Uduma, Tripunithura,
Muvattupuzha,
Ottapalam, Kalliaserry,
Mangattidam, Trikaripur,
and Kanhangad;

343
Sector Brief Description: Department Objective (Limited to Estimated Timeline for Timeline for
Project/Investment RKDP) Outlay in Preparation Implementation
(including key Rs. crore
components/elements)

Establishment/completion Supply potable drinking 3,601.00 April 2019 to May 2019 to

of Bulk water supply and water to 2,462,465 May 2020 March 2023
distribution systems and population in the Districts
networks with Household of Pathinamthita
connections Kottayam Ernakulam,
Thrissur, Malappuram,
Kannur, Kasaragod
Thiruvananthapuram,
Kollam, Alappuzha, Idukki,
Wayanad
Proposals being prepared Supply potable drinking 436.00 April 2019 to May 2019 to
for submission to National water through distribution January 2019 June 2021
Water quality scheme for networks in the Gram
establishment of supply Panchayats of Kongad,
and distribution networks Nenmara, Shrnur,
Peerumade, Tarur and
Mannarkad in the districts
of Palakkad and Idukki to
benefit population of
683,183
Improvement of Water Improve and monitor 34.00 April 2019 to May 2019 to
Quality through quality of the potable January 2020 December 2021
upgradation of labs to drinking water supplied to
support regular water the population in all
quality checks/monitoring districts
Installation of Solar Power Utilization of 200 acres of 250.00 April 2020 to September 2021
units in KWA land in 14 land available at KWA May 2021 to December
locations to support installation sites to 2023
operations produce 40 MW power to
support energy
requirements for its
operations

344
 Sector Brief Description: Department Objective (Limited to Estimated Timeline for Timeline for
Project/Investment RKDP) Outlay in Preparation Implementation
(including key Rs. crore
components/elements)

Total - C # of 9,958.00
beneficiaries
- 8,633,720
Bulk Supply facilities KWA Supply potable drinking 3,404.00 April 2019 to May 2019 to
Urban Water completed. Establishment water to 2,960,308 January 2020 June 2021
Supply of Drinking water population in 15
distribution networks and Municipalities in the
household connections districts of Alappuzha,
Kottayam, Palakkad,
Malappuram, Wayanad
Kottayam Idukki,
Ernakulam, Thrissur,
Malappuram, Kannur and
18 Gram panchayats in the
urban sprawl of these
municipalities
Bulk Supply facilities Supply of Potable drinking 600.00 April 2019 to 30% to be
completed. Establishment water for a population of June 2020 completed by
of Drinking water 825,149 in the March 2021,
distribution networks and municipalities Palakkad, balance 70% by
household connections Kollam, Kozhikode, December 2023
proposed for ADB funding Kannur, Kasaragod
Supply of uninterrupted To establish 24x7 water 1,850.00 April 2019 to 30% to be
drinking water supply in supply in Trivandrum and June 2020 completed by
the cities of Kochi to benefit March 2021,
Thiruvanthapuram and population of 1,265,000 balance 70% by
Kochi - proposed for ADB December 2024
funding
Measures for To establish 24x7 water 940.00 April 2019 to May 2021 to
uninterrupted Drinking supply in the June 2022 June 2025
Water supply distribution municipalities in all the
network system

345
 Sector Brief Description: Department Objective (Limited to Estimated Timeline for Timeline for
Project/Investment RKDP) Outlay in Preparation Implementation
(including key Rs. crore
components/elements)

districts to benefit
population of 11,865,000

Establishment for full To ensure all remaining 5,375.00 April 2019 to 20% to be
Water Supply with municipalities in the June 2023 completed by
production and districts of Kottayam, March 2021,
distribution Thrissur, Palakkad, balance 80% by
Kozhikode, Kasaragod, December 2026
Malappuram to benefit
the remaining urban and
rural areas in the urban
sprawl totalling population
to 2,573,953
Total - D # of 12,169.00
beneficiaries
- 19,664, 430
Mukkada Edamon PWD Rehabilitate/reconstruct/i 80.00 April 2019 to February 2020 to
State highways and Athikkayam Kakkudumon mprovements of key March 2020 December 2021
key Feeder roads Mandhamaruthy Road carriage ways across the
Pathanamthitta- Ayroor– State which were affected 112.46 April 2019 to February 2020 to
Muttukudukka Illathupadi by the floods and improve March 2020 December 2021
– Muttukudukka associated peripheral
Prakkanam – Prakkanam roads to enhance
Elavumthitta - Kulanada resilience and access
Ramanchira – Thannikuzhy during disasters and trade
Thonniamala in normal times
Edathua – Thayamkary- 108.00 April 2019 to February 2020 to
Kodupunna- Ramankary- March 2020 December 2022
Mancombu Kavalam Vikas
Marg Road- Kannady Jn –
Thattasserry- -

346
Sector Brief Description: Department Objective (Limited to Estimated Timeline for Timeline for
Project/Investment RKDP) Outlay in Preparation Implementation
(including key Rs. crore
components/elements)

Neelamperoor-Kurichi
Road

Gandhinagar-Medical 87.80 April 2019 to February 2020 to

College-Babu Chazhikadan March 2020 June 2023
Road-Kottayam-Parippu
Road-Athirampuzha
Liessue-Kaippuzha-
Mannanam-
Pulikkuttissery-Parolickal-
Muttappally Road
Improvements to Painavu 84.00 April 2019 to February 2020 to
Thannikandom March 2020 June 2021
Asoakkavala road

Idukki Neriyamangalm 96.20 April 2019 to February 2020 to

road March 2020 Deccember 2021
Improvements to riding 83.40 April 2019 to February 2020 to
quality of Chemmannar January 2020 June 2021
Gap road
Thrissur Kuttippuram Road 119.92 April 2019 to February 2020 to
(SH 69) January 2020 June 2021
Rahabilitation of 122.84 April 2019 to February 2020 to
Nenmara-Nelliampathy January 2020 June 2021
Road
Improvements to 204.80 April 2019 to February 2020 to
Koyilandy Thamrassery January 2020 June 2021
Mukkam Areekode
Edavanna (KTMAE- SH 34)

347
 Sector Brief Description: Department Objective (Limited to Estimated Timeline for Timeline for
Project/Investment RKDP) Outlay in Preparation Implementation
(including key Rs. crore
components/elements)

Rehabilitation of Vythiri- 83.00 April 2019 to February 2020 to

Tharuvana road January 2020 June 2021
Mananthavady LAC- 99.20 April 2019 to February 2020 to
Improvements to January 2020 June 2022
Mananthavady -
Vimalanagar - Kulathada -
Valad HS - Periya road
Edoor – Companynirath - 88.00 April 2019 to February 2020 to
Angadikkadavu– January 2020 June 2022
Charal - Valavupara -
Kacherikkadavu -
Palathumkadav road
Other key damaged 630.00 September February 2021 to
highways and feeder 2019 to June 2024
roads and bridges in the October 2020
districts of Idukki,
Alappuzha and
Patthinamthitta
Total - E 1,999.62
Land registration and Land To complete digitization 200.00 April 2019 to September 2019
Revenue cadastral mapping needs Commission of land records in Kerala January 2021 to June 2022
assessment, and business er and modernization of
process review; ICT record rooms to maintain
system design, process the records facilitate land
reengineering; administration, zoning
Digitalization assessment and development
and plan; Mass survey and activities
registration campaign
piloting
Total - F 200.00

348
 Sector Brief Description: Department Objective (Limited to Estimated Timeline for Timeline for
Project/Investment RKDP) Outlay in Preparation Implementation
(including key Rs. crore
components/elements)

Establihsment of KWA and To establish STP to ensure 1,725.00 April 2019 to 20% will be
Urban Sanitation Sewerage Disposal and Municipalitie safe disposal of waste December completed by
Treatment s water and septage and 2019 March 2021
treatment of Sewerage in remaining works
the municipalities will be
Thiruvanthapuram, completed by
Kozhikode and Alappuzha 2023
to benefit population of
1,285,527
System for re-use of To distribute treated 110.00 April 2019 to 10% will be
treated water from STPs water to industrial and December completed by
(including treatment and other commercial users 2020 March 2021 and
distribution) near the cities of remaining works
Thiruvanthapuram, Kochi, will be
Kasargode, Kollam completed by
2023

Establihsment of To establish STP to ensure 40.00 April 2019 to 20% will be

Rural Sanitation Sewerage Disposal and safe disposal of waste December completed by
Treatment water and septage and 2019 March 2021
treatment of Sewerage in remaining works
the rural areas of will be
Pathhinamthitta to benefit completed by
a population of 200,000 2023
Establihsment of To provide sanitation 2,750.00 April 2019 to 20% will be
Urban and Rural Sanitation and Sewerage infrastructure for March 2020 completed by
Sanitation infrastructure in Kerala maintaining clean March 2021
environment for 13 million remaining works
urban and 5 millon rural will be
population completed by
2023

349
 Sector Brief Description: Department Objective (Limited to Estimated Timeline for Timeline for
Project/Investment RKDP) Outlay in Preparation Implementation
(including key Rs. crore
components/elements)

Establishment of To provide infrastructure 942.00 April 2019 to 20% will be

infrastructure for for septage collection and March 2020 completed by
collection & treatment to service 80% March 2021
transportation of septage of urban and 30% rural remaining works
population to maintain a will be
clean environment completed by
2023
Total - G 5,567.00
Infrastructure for Realignment of 200.00 April 2019 to September 2019
Agriculture establishment of Agro- Department department operations at March 2020 to December
ecological Management of ground level in 2021
units Agriculture accordance with the
newly reorganized 5 agro-
ecological zones to serve
the sector better
Geo-spatial Decision To provide end-to-end 50.00 June 2019 to October 2019 to
support system -Agri 4.0 - services to farmers to August 2019 December 2020
ICT Backend platform to improve agriculture
support agriculture productivity in the State
operations in the State
Capacity building of staff Capacity and knowledge 50.00 April 2019 to September 2019
of DoA enhancement in March 2020 to December
alignment with the 2021
restructured agro-
ecological zones
Promotion of cultivation To initiate shift in 700.00 April 2019 to 30% by
of key identified crops as production of crops March 2020 December 2020,
per agro-ecological zones identified under each balance by
and support agro-ecological zones to December 2022
establishment of value increase productivity,
chains value addition, and
income farmers

350
 Sector Brief Description: Department Objective (Limited to Estimated Timeline for Timeline for
Project/Investment RKDP) Outlay in Preparation Implementation
(including key Rs. crore
components/elements)

Establishment of soil To collect and monitor soil 250.00 April 2019 to 30% by
health and advisory clinics health and feed into the March 2020 December 2020,
for last mile service decision support systems balance by
delivery to provide advisory December 2023
services to farmers to
improve productivity and
quality
Rejuvenation of flood Support to recover flood 150.00 April 2019 to September 2019
affected plantations damaged plantation March 2020 to March 2021
Rehabilitation of flood Support to construct 300.00 April 2019 to September 2019
affected Infrastructure in damaged and washed March 2021 to March 2021
Kuttanad and Kole areas away bunds and related
sluice gates in place of
new pump sets to
regulate water flow in the
channels
Total - H 1,700.00
Establishment of modern Dept. of To ensure hygiene 100.00 April 2019 to September 2019
Animal Husbandry abattoirs in all key centres Animal practices of supplying March 2020 to March 2021
in each district Husbandry meat is established
Last mile animal care, Establishment of mobile 75.00 April 2019 to September 2019
health and disease veterinary services units March 2020 to March 2021
preventions services to provide on-site service
delivery and monitoring
Installation of RFID tags on To monitor health of 24.00 April 2019 to September 2019
livestock for improved livestock and monitor March 2020 to December
monitoring and 10,00,000 2021
rectoral thermometers
Total - I 199.00
Total of 36,706.88
A+B+C+D+E+F+G+H+I

351
Annex-2: Government Order Operationalising the Rebuild Kerala Initiative

352
353
Annex-3: Institutional Setup for Rebuild Kerala Initiative

354
Caveat

The proposed interventions, studies, and projects in this report for each sector
are initial proposals which have not been vetted in detail for their feasibilities.
Further, other priority projects may also emerge from the process.

355