Kayalpatnam City Development Plan

City Development Plan
Kayalpattinam
Final Report
August 2009
Infrastructure Professionals Enterprise Private Limited (IPE)

CDP - KAYALPATTINAM FINAL REPORT
CONTENTS
CHAPTER– 1
INTRODUCTION TO THE CITY DEVELOPMENT PLANNING PROCESS ...........................................1

1.1 The CDP Initiative................................................................................................ 1
1.2 The JNNURM; its Thrust and Coverage ............................................................. 1
1.3 The UIDSSMT....................................................................................................... 1
1.4 CDP objectives under UIDSSMT ........................................................................ 2
1.5 Essential Features of a CDP ............................................................................... 2
1.6 A Brief on ULB’s in Tamil Nadu.......................................................................... 3
1.7 Scope of Work ..................................................................................................... 4
1.8 Directorate of Municipal Administration (DMA) –TNUDP-III Project ................ 6
CHAPTER - 2
CITY VISION AND THE REGIONAL CONTEXT ....................................................................................8

2.1 Introduction ......................................................................................................... 8
2.2 The State Context: Inputs ................................................................................... 8
2.2.1 Political – Historic..............................................................................................................8
2.2.2 Urban Growth - Governance ...........................................................................................8
2.2.3 Location - Geography ....................................................................................................11
2.2.4 Demography – Economy ...............................................................................................11
2.2.5 Infrastructure – Industry ................................................................................................15
2.3 The District Context: Inputs.............................................................................. 15
2.3.1 Location – Geographic ..................................................................................................15
2.3.2 Urban Growth – Governance ........................................................................................19
2.3.3 Historic – Political ..........................................................................................................20
2.3.4 Demography-Economy-Human Resource ....................................................................21
2.3.5 Infrastructure-Industry ...................................................................................................22
2.4 Relevant District Profile .................................................................................... 24
2.5 Taluka Context: Inputs...................................................................................... 24
2.6 Inception Stage and the SWOT Analysis ......................................................... 25
2.7 Emerging Kayalpattinam Vision....................................................................... 27
2.8 Inputs from Kayalpattinam Vision: Proposals and Spatial Perspective .... 27
CHAPTER - 3
TOWN PROFILE .................................................................................................................................29

3.1 Town History and Growth................................................................................. 29
3.2 Climate and Physical Features......................................................................... 29
3.3 Demography ...................................................................................................... 29
3.3.1 Population Growth Trends.............................................................................................30
3.4 Literacy and Sex Ratio ...................................................................................... 31
3.5 Urban Economy................................................................................................. 32
3.5.1 Occupational Structure ..................................................................................................32
3.5.2 Commerce and Industry ................................................................................................32
3.6 Land Use............................................................................................................ 33
3.6.1 Residential Area ............................................................................................................33
3.6.2 Commercial Area...........................................................................................................33
3.6.3 Industrial Area ...............................................................................................................33
3.6.4 Transportation ...............................................................................................................33
3.7 Spatial Pattern ................................................................................................... 33
3.7.1 Spatial Growth Trends/ Urban Sprawl...........................................................................33
3.7.2 Spatial Population Distribution ......................................................................................34
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3.7.3 Future Growth Patterns .................................................................................................34

3.8 Emerging Issues................................................................................................ 34
3.9 Population Forecast.......................................................................................... 34
CHAPTER 4
URBAN INFRASTRUCTURE, ENVIRONMENT & SERVICE DELIVERY ...........................................36

4.1 Water Supply ..................................................................................................... 36
4.1.1 Source and Availability of Water ...................................................................................36
4.1.2 Storage and Treatment Facility .....................................................................................38
4.1.3 Water Transmission and Distribution ............................................................................38
4.1.4 Consumer Connections .................................................................................................38
4.1.5 System Adequacy and Water Tariff...............................................................................38
4.1.6 Distribution Losses and Unaccounted Water Flow .......................................................39
4.1.7 Demand Collection Balance Sheet................................................................................39
4.1.8 Issues Emerged.............................................................................................................40
4.1.9 Key Issues .....................................................................................................................40
4.1.10 Demand - Supply Gap and Future Requirement...........................................................40
4.1.11 Designing the Services..................................................................................................41
4.1.12 Urban Indicators – Water Supply ..................................................................................41
4.1.13 Effective Practices .........................................................................................................41
4.1.14 Strategies and Time Frame...........................................................................................42
4.2 Sewerage and Sanitation System .................................................................... 42
4.2.1 Current Disposal Systems .............................................................................................42
4.2.2 Coverage .......................................................................................................................42
4.2.3 Issues ............................................................................................................................43
4.2.4 Demand and Supply Gap-Future Requirement.............................................................43
4.2.6 Performance Indicators – Sewerage & Sanitation ........................................................44
4.2.7 Designing the System ...................................................................................................44
4.2.8 Suggestions...................................................................................................................44
4.3 Storm Water Drainage....................................................................................... 45
4.3.1 Existing Drainage System .............................................................................................45
4.3.2 Service Adequacy..........................................................................................................45
4.3.3 Key Issues .....................................................................................................................45
4.3.4 Suggestions...................................................................................................................46
4.4 Solid Waste Management ................................................................................. 46
4.4.1 Waste Generation..........................................................................................................46
4.4.2 Waste Collection............................................................................................................47
4.4.3 Waste Transportation and Disposal ..............................................................................48
4.4.4 Staff Pattern...................................................................................................................48
4.4.5 Performance Indicator ...................................................................................................49
4.4.6 Demand Supply Gap-Future Requirement....................................................................49
4.4.7 Issues ............................................................................................................................49
4.4.8 Suggestions...................................................................................................................50
4.5 Traffic, Transportation & Roads....................................................................... 51
4.5.1 Existing Situation and Adequacy...................................................................................51
4.5.2 Issues ............................................................................................................................52
4.5.3 Gap Analysis .................................................................................................................53
4.5.4 Suggestions...................................................................................................................53
4.5.5 Strategies and Time frame ............................................................................................53
4.6 Street Lighting................................................................................................... 54
4.6.1 Existing Situation ...........................................................................................................54
4.6.2 Service Adequacy..........................................................................................................54
4.6.3 Issues Emerged.............................................................................................................54
4.6.4 Suggestions...................................................................................................................54
4.7 Social Infrastructure ......................................................................................... 55
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4.7.1 Education.......................................................................................................................55
4.7.2 Health ............................................................................................................................55
4.7.3 Issues ............................................................................................................................55
4.8 Urban Environmental Concerns....................................................................... 55
4.8.1 Air Quality ......................................................................................................................56
4.8.2 Water Quality.................................................................................................................56
4.8.3 Parks and Play Grounds ...............................................................................................56
4.8.4 Issues Emerged.............................................................................................................56
CHAPTER – 5
HOUSING, SLUMS AND THE URBAN POOR .....................................................................................57

5.1 Introduction ....................................................................................................... 57
5.2 Housing Categories and Conditions................................................................ 57
5.3 Slums and BPL.................................................................................................. 58
5.4 Infrastructure Provision in Slums .................................................................... 58
5.5 Indicators, Basic Services Availability & Gaps ............................................... 59
5.6 Housing Demand and Housing Shortage ........................................................ 59
CHAPTER - 6
HERITAGE
6.1 Introduction ....................................................................................................... 60
6.2 Heritage Components ....................................................................................... 60
6.3 Heritage Sites near Kayalpattinam................................................................... 60
6.4 Heritage Conservation ...................................................................................... 63
6.5 State Interventions ............................................................................................ 63
6.6 Issues and Concerns ........................................................................................ 64
CHAPTER - 7
URBAN GOVERNANCE AND URBAN REFORMS .............................................................................65

7.1 Introduction ....................................................................................................... 65
7.2 74th CAA: Tamil Nadu Urban Local Bodies Bill .............................................. 65
7.3 JNNURM Reform Agenda ................................................................................. 66
7.4 ULBs Organisational Structure ........................................................................ 67
7.4.1 Political Wing .................................................................................................................67
7.4.2 Executive Wing..............................................................................................................68
7.5 Reforms for ULB under UIDSSMT.................................................................... 69
7.6 Mandatory Reforms at Urban Local Body ....................................................... 69
7.6.1 Status of Mandatory Reforms in Kayalpattinam............................................................70
7.7 Multiplicity of Line Agencies ............................................................................ 70
7.8 Issues................................................................................................................. 70
7.9 Reforms Undertaken by Kayalpattinam ULB................................................... 71
7.9.1 Computerization Initiatives ............................................................................................71
7.9.2 E-Governance Reforms.................................................................................................71
7.9.3 Citizens Charter.............................................................................................................71
7.10 Recommended Organisational Structure ........................................................ 71
7.11 Suggestions....................................................................................................... 74
CHAPTER - 8
MUNICIPAL FINANCE ..........................................................................................................................75

8.1 Introduction ....................................................................................................... 75
8.2 Revenue Account .............................................................................................. 75
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8.3 Revenue Receipts ............................................................................................. 76

8.4 Revenue Expenditure........................................................................................ 78
8.5 Trends in Income & Expenditure...................................................................... 79
8.6 Demand Collection Balance (DCB) Scenario .................................................. 80
8.6.1 DCB for Property Tax ....................................................................................................80
8.6.2 DCB for Professional Tax ..............................................................................................81
8.6.3 DCB for Water Charges ................................................................................................82
8.7 Ratio Analysis ................................................................................................... 83
CHAPTER - 9
DEVELOPMENT OF PERSPECTIVE AND VISION OF THE CITY......................................................84

9.1 Spatial Perspective for Kayalpattinam 2041.................................................... 84
9.2 Sector Specific Objectives and Projects ......................................................... 84
9.2.1 A Spatial Growth Strategy (Town Level) .......................................................................84
9.2.2 Spatial Growth Strategies – Regional Level..................................................................85
9.2.3 Short Term Projects (2008 - 2013)................................................................................85
9.2.4 Prioritisation of Projects.................................................................................................85
9.3 Infrastructure Projects ...................................................................................... 86
9.3.1 Water Supply .................................................................................................................86
9.3.2 Sewerage/ Under Ground Drainage..............................................................................86
9.3.3 Storm Water Drainage...................................................................................................87
9.3.4 Sanitation.......................................................................................................................87
9.3.5 Traffic and Transportation .............................................................................................88
9.3.6 Urban Poor and Slums ..................................................................................................89
9.3.7 Solid Waste Management .............................................................................................90
9.3.8 Tourism..........................................................................................................................91
9.4 Concurrence on Prioritized Projects................................................................ 91
CHAPTER - 10
CITY INVESTMENT PLAN (CIP)...........................................................................................................93

10.1 Backdrop Study................................................................................................ 94
10.2 CIP Process for Kayalpattinam ....................................................................... 94
10.3 Water Supply .................................................................................................... 94
10.4 Sewerage and Sanitation ................................................................................. 96
10.5 Storm Water Drainage...................................................................................... 97
10.6 Solid Waste Management ................................................................................ 98
10.7 Traffic and Transportation............................................................................... 98
10.8 Street Lighting.................................................................................................. 98
10.9 Basic Services to Urban Poor ......................................................................... 98
10.10 List of Projects for Kayalpattinam under different Sectors .......................... 98
10.11 Sectorwise City Investment Plan.................................................................. 109
CHAPTER - 11
ASSEST MANAGEMENT....................................................................................................................109
11.1 Introduction ..................................................................................................... 109
11.2 Benefits of Asset Management ...................................................................... 110
11.3 Asset Management Plan Methodology .......................................................... 110
11.4 Requirements of Asset Management............................................................. 112
11.4.1 Capital database..........................................................................................................112
11.4.2 Maintenance Management..........................................................................................112
11.4.3 Risk & Reliability Assessment .....................................................................................118
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11.4.4 Valuation......................................................................................................................118
11.4.5 Life Cycle Costing........................................................................................................118
11.4.6 Contracting Asset Management ..................................................................................119
11.5 infrastructure Assets ...................................................................................... 121
11.5.1 Water Supply ...............................................................................................................121
11.5.2 Sanitation.....................................................................................................................121
11.5.3 Solid Waste Management ...........................................................................................121
11.5.4 Road & road Infrastructure ..........................................................................................121
11.5.5 Street Lights ................................................................................................................122
11.6 Land, Buildings & Vehicles............................................................................. 122
11.7 Strategies and Recommendations ................................................................. 122
LIST OF ANNEXURE
ST
Annexure – I Minutes of the Multi-Stakeholder Workshop held on 21 September, 2007
th
Minutes of the Review Committee Meeting, 16 October ,2007
Annexure- II Contents of An Ideal Citizens Charter
LIST OF FIGURES
Fig. 1.1: City Development Plan-Framework 2
Fig 2.1: Urban Frame, Tamil Nadu 10
Fig. 2.2: Proportion of Rural and Urban Population, Tamil Nadu 10
Fig 2.3: Distributions of Towns by Size Class 2001, Tamil Nadu 10
Fig. 3.1: Kayalpattinam - Beach 29
Fig. 3.2: Kayalpattinam - Dense development 29
Fig 3.3: Population Growth 30
Fig 3.4: Decadal Growth Rate 30
Fig. 3.5: Population Density 30
Fig 3.6: Literacy Rate 32
Fig 3.7: Population Forecast (Arithmetic, Incremental, Geometric and Exponential Method) 35-36
Fig 4.1 Water Storage Tank 39
Fig. 4.2: Primary Collection 48
Fig. 4.3: Secondary Collection 49
Fig. 4.4: A Glimpse of the Roads in Kayalpattinam 52
Fig.6.1: Tiruchendur Murugan Temple 62
Fig. 7.1: Existing Organizational Structure 68
Fig 8.1 Trends in Revenue Income and Expenditure 76
Fig 8.2 Source wise Revenue Income (%) 77
Fig 8.3 Average Share of Revenue Income (%) 78
Fig 8.4 Component wise share of Revenue Expenditure (%) 79
Fig 8.5 Average Share of Revenue Expenses (%) 79
Fig 8.6 Growth Rate in Revenue Income and Expenditure 80
Fig 8.7 Collection Efficiency for Property Tax (%) 81
Fig 8.8 Collection Efficiency for Professional Tax (%) 81
Fig 8.9 Collection Efficiency for Water Charges (%) 82
Fig 11.1 Assest Management plan 112
Fig 11.2 High Resolution Imagery Quick Bird 116
Fig 11.3 Use of hand held devices for data entry 117
Fig 11.4 CityWorks GIS based Asset Management System 117
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Fig 11.5 Map depicting the water supply network 118

Fig 11.6 Map depicting the water supply network on GIS 118
LIST OF MAPS
Map 1: Administrative Transformation in Tamil Nadu (1951-2001) 9
Map 2: Location Map of Tamil Nadu 11
Map 3: Tamil Nadu Reference Districts 12
Map 4: Physical Map of Tamil Nadu 13
Map 5: Reference District-Tamil Nadu Inter- District Comparison 14
Map 6: Reference District Road and Ral Network 15
Map 7: Taluka Map of Thoothukudi District 16
Map 8: Thoothukudi District showing the linkages 17
Map 9: Administrative Map, Thoothukudi District 18
Map 10: Tiruchendur Taluk, Thoothukudi District 19
Map 11: Urbanised Taluks in Thoothukudi District 20
Map 12: Tiruchendur Taluk Showing Rail Road Network and Towns 23
Map 13: Diagrammatic Proposal for Spatial Development 28
Map 14: Ward wise Population Densities in Kayalpattinam Town 31
Map 15: Water Supply Coverage 38
LIST OF TABLES
Table 1.1: Tamil Nadu Urban Population (1961-91) 3
Table 2.1: Urban Population of Tamil Nadu, 1961-2001 8
Table 2.2: Indices of Human Development and Gender Development 12
Table 2.3: Reference Districts, Tamil Nadu: Comparative 12
Table 2.4 : Tamil Nadu Districts – According to the Levels of Poverty 13
Table 2.5 : Thoothukudi District; Taluk Boundaries, Urban Vs. Rural Taluks 20
Table 2.6: Talukawise Distribution of Total Workers by their Sector of Economy 21
Table 3.1: Population Growth Trend 30
Table 3.2: Ward – Wise Population 31
Table 3.3: Literacy Rate 32
Table 3.4: Sex Ratio 32
Table 3.5: Occupational Structure 33
Table 3.6: Land Use Distribution 33
Table 3.7: Population Growth Trend and CAGR 35
Table 3.8: Population Forecast 35
Table 3.9: Proposed Population 36
Table 4.1: Existing Situation Water Supply 37
Table 4.2: Location of Storage Tanks and Capacity 38
Table 4.3: Demand Collection Balance Statement 40
Table 4.4: Demand and Supply Gap 41
Table 4.5: Urban Indicators – Water Supply in Kayalpattinam 42
Table 4.6: Strategies and Time Frame – Water Supply 42
Table 4.7: Sanitation Facilities 43
Table 4.8: Demand-Gap Analysis 44
Table 4.9: Strategies and Time Frame – Sewerage and Sanitation System 44
Table 4.10: Performance Indicators 44
Table 4.11: Basic Data – Storm Water Drainage 46
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Table 4.12: Strategies and Time Frame – Storm Water Drainage 47

Table 4.13: Quantity of Waste Generated 47
Table 4.14: Waste Collection 48
Table 4.15: Waste Collection 48
Table 4.16: Existing Fleet of Vehicles 49
Table 4.17: Staffing Pattern 49
Table 4.18: Performance Indicator, SWM 50
Table 4.19: Gap Analysis Solid Waste Management 50
Table 4.20: Existing Road Network 52
Table 4.22: Gap for Traffic and Transportation 54
Table 4.23: Strategies and Time Frame 54
Table 4.24: Details of Luminaries 55
Table 4.26: Educational Institutions 55
Table 4.27: Health Facilities 56
Table 5.1 Housing Condition (for Roof, Floor, Walls) 59
Table 5.2: Ward Wise Slum Population and BPL Population 59
Table 5.3: Infrastructure Provision in Slums 59
Table 5.4: Growth of Houses and Households 60
Table 5.5: Housing Gap 60
Table 5.6: Slum Housing Demand 60
Table 6.1: Tourist Arrivals in Tamil Nadu 65
Table 7.1: Staffing Pattern – Executive Wing 70
Table 7.2: Line Agencies Operating in Kayalpattinam 71
Table 7.3: Proposed Organization Structure for Kayalpattinam 73
Table 8:1: Revenue Account (in lakhs) 76
Table 8.2: Revenue Receipts (Rs. In Lakhs) 77
Table 8.3 Revenue Receipts as Percentages of Total Revenue Receipts (value in %) 77
Table 8.4: Break – Up of Revenue Expenditure (Rs. In Lakhs) 78
Table 8.5 Revenue Expenditure as Percentage of Total Revenue Expenses (value in %) 79
Table 8.6: Growth Rate in Revenue Income (%) 79
Table 8.7: Growth Rate in Revenue Expenditure (%) 80
Table 8.8: Demand Collection Balance for Property Tax (Rs. In lakhs) 80
Table 8.9: DCB for Professional Tax (Rs. in Lakhs) 81
Table 8.10: DCB of Water Charges (Rs in Lakhs) 82
Table 9.1 : Water Supply Projects ; Prioritisation and Time Frame 85
Table 9.2: Underground Drainage (Sewerage) Projects ; Prioritisation and Time Frame 86
Table 9.3: Storm Water Drainage Projects : Prioritisation and Time Frame 86
Table 9.4 : Sanitation Projects : Prioritisation and Time Frame 86
Table 9.5 : Transportation Projects : Prioritization and Time Frame 88
Table 9.6: Urban Poor Projects : Prioritization and Time Frame 88
Table 9.7 : SWM Projects ; Prioritisation and Time Frame 89
Table 9.8 : Tourism Projects ; Prioritisation and Time Frame 90
Table 11.1: Information provided in the asset Module 115
Table 11.2: Details on Water Supply System 121
Table 11.3: Road Network of Kayalpattinam 122
Table 11.4: Number of Lights by Type 122
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Table 11.5: Details on Land, Building and Vehicles 122

Table 11.6: Details on the Kodinar Project 126
ABBREVIATIONS AND ACRONYMS

BPL : Below Poverty Line
CAGR : Compounded Annual Growth Rate
CCP : City Corporate Plan
CDP : City Development Plan
CIP : Capital Investment Plan or Programme
DMA : Directorate of Municipal Administration
CMFRI : Central Marine Fisheries Research Institute
CRZ : Coastal Regulation Zone
DPR : Detailed Project Reports
EO : Executive Officer
GIS : Geographical Information System
GoTN : Government of Tamil Nadu
IDSMT : Integrated Development of Small and Medium Towns
IHSDP : Integrated Housing and Slum Development Program
JNNURM : Jawaharlal Nehru National Urban Renewal Mission
KM : Kayalpattinam Municipality
LPA : Local Planning Authority
LPCD : Litres per capita per Day
MLD : Million Litres per day
MOU : Memorandum of Understanding
MoUD : Ministry of Urban Development
NH : National Highway
NSSO : National Sample Survey Organisation
OHT : Over Head Tanks
PPP : Public Private Partnerships
PWD : Public Works Department
SFC : State Finance Commissions
SH : State Highway
SJSRY : Swarna Jayanti Shehri Rojgar Yojna
SWD : Storm Water Drains
SWM : Solid Waste Management
TNPCB : Tamil Nadu Pollution Control Board
TNUDP : Tamil Nadu Urban Development Project
TWAD : Tamil Nadu Water Supply and Drainage Board
UIDSSMT : Urban Infrastructure Development Scheme for Small and Medium Towns
ULB : Urban Local Body
WPR : Workforce Participation Rate
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CDP - KAYALPATTINAM DRAFT FINAL REPORT
CHAPTER– 1
INTRODUCTION TO THE CITY DEVELOPMENT PLANNING PROCESS

1.1 The CDP Initiative
The City Development Plan (CDP) was first conceptualized under the Jawaharlal Nehru National Urban
Renewal Mission (JNNURM) as launched in December 2005 by the Government of India through the
Ministry of Urban Development (MoUD) to give a boost to the integrated Urban and Infrastructure
Development of cities, taking into account the challenge of rapid urbanization, infrastructure and public
services that under-serve increasing population, growing poverty and city management that cannot cope
with rapidly changing urbanscape.
The JNNURM has taken up 63 cities in the country to formulate CDP’s under an environment of reforms
in the urban sector. The agenda foresees investments and reforms in the selected urban areas through
measures as (a) Good Governance (service delivery mechanism) (b) Efficiency in Urban Infrastructure (c)
Community Participation (d) Accountability of Urban Local Bodies (ULB’s). These are to be undertaken at
all levels (State and ULB’s) for achieving the mission objectives.
Key components envisaged for a CDP are, Vision/Perspective Plans, 5 to 7 yearly programs and
Projects, prioritization of the identified projects, leveraging of funds and participatory based governance.
1.2 The JNNURM; its Thrust and Coverage

The thrust of the JNNURM are inter alia to ensure that the following are addressed and substantially
achieved in the urban sector:
• Planned growth of identified cities/towns including peri-urban areas, outgrowths and urban
corridors leading to dispersed urbanization;
• Focused attention to integrated development and infrastructure provision in cities/towns;
• Establishment of linkages between asset-creation and asset-management through reforms for
long term project sustainability;
• Ensuring adequate funds to meet the deficiencies in urban infrastructure services;
• Special focus on urban renewal programmes for old city areas to reduce congestion and
focus on its heritage;
• Scaled up delivery of civic amenities and provision of utilities with emphasis on the inclusive
city that incorporates the urban poor and other marginalized groups;
• Provision of basic services to the urban poor including improved housing, water supply and
sanitation, and ensuring delivery of other existing services of the government for education,
health and social security;
• The prime focus however is on private public participation through down top governance
requiring a slew of reforms.
1.3 The UIDSSMT

The Centrally sponsored Urban Infrastructure Development Scheme (UIDSSMT) 2005 is based on the
guidelines of the aforementioned JNNURM, combines two previous Central schemes, Integrated
Development of Small and Medium Towns (IDSMT) and Accelerated Urban Water
Supply Program (AUWSP) and covers all small and medium towns as per census 2001 (except those
already covered by JNNURM) for their planned growth and infrastructure improvement.
Accordingly, The Government of Tamil Nadu (GoTN) have approved and initiated preparation of CDP’s
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for third grade municipalities in the state under the UIDSSMT, wherein the GOI finances 80 percent with
the state government and the ULB each contributing 10 percent of the costs of development.
1.4 CDP objectives under UIDSSMT

CDP preparation under the UIDSSMT envisages:
(a) A “vision” for the future development of the city or town
(b) Propose a set of objectives and goals which the city or town aims to achieve and
(c) Identify thrust areas in various sectors which need to be addressed on a priority basis in
order to achieve the objectives and the vision.
It thus provides the overall framework within which projects are to be identified and put forward in a 5-
year Capital Investment Plan or Programme (CIP). Seen in this light, the CDP differs from a traditional
Master Plan or Development Plan which focuses on development trends based on land use and related
development controls.
UIDSSMT funds are subject to implementing urban reforms. The follow up of the CDP are a series of
Detailed Project Reports (DPR’s) which outline project costs and strategies for implementing the
proposed CDP activities. Implicitly, through the UIDSSMT, a modest traunch of projects are funded,
provided the bulk gets committed (sectorally or otherwise) in an integrated manner. The ULB’s are also
required to make meaningful contributions including market borrowing. The basic inputs and outputs of
CDP are envisaged in the diagram as below:
Fig. 1.1: City Development Plan-Framework
City Development
Plan
Incorporate
Public View &
Interest Vision Statement and Data Analysis
Perspective Plan
• Strategies, • Infrastructure Gaps

Interventions & • Alternatives &
5 year Projects
Sectoral Plans changes.
Prioritization
• Sustainability
• Service outcomes & • Investment Needs
timeframes • Accountability
Investment Plan
1.5 Essential Features of a CDP

A CDP is expected to have all or as many of the following features:
(a) A 30 year horizon, based on past trends, existing strengths and limitations;
(b) A planning horizon to be foreseeable and achievable;
(c) Plans to integrate infrastructure requirements and environmental concerns together with
Land-use patterns and development regulation;
(d) To derive the vision, objectives and targets from socio-economic needs and quality of life
needs as articulated by their citizens, their representatives and other stakeholders from civil
society;

(e) Poverty alleviation and needs of urban poor as important elements of such a plan with
proportionate allocation of resources;
(f) To focus on available resources and to balance needs and priorities within the available
resources;
(g) Multiple stakeholder agencies are to be involved in such planning to ensure a shared and
commonly owned vision, development objective and plan of action;
(h) Private sector role in preparation of plans, financing and its implementation;
(i) Institutional reforms and capacity enhancement measures of ULB’s and / or other civic
agencies.
1.6 A Brief on ULB’s in Tamil Nadu
The constitution of India ordains that India is a union of states and union territories with residual powers
vesting in Central Government. Though ULB’s existed even prior to British colonization, they were
formally given the status of ‘democratic institutions of self government’ only in 1992, with the passing of
the Constitution (74th Amendment) Act. The Act provides for direct election to three types of
Municipalities; town Panchayats for areas in transition from rural to urban areas; Municipal councils for
small urban areas and Municipal Corporations for larger urban areas.
The state ULB’s comprise 6 Municipal Corporations and 151 Municipalities, including 49 erstwhile Town
Panchayats upgraded to third grade municipalities in June 2004 (These upgraded towns form the
reference point of the CDP preparation under study). They constitute towns with population over 30,000
and income over Rs.5 million as municipalities.
Tamil Nadu is one of the most urbanized states of India with an urban population of 27.5 million, about 44
percent of the state population. The average decadal annual growth rate of urban population (1991-2001)
has been around 4.2 percent. The urban populace of Tamil Nadu is well distributed over various classes
of urban agglomeration and towns.
Table 1.1: Tamil Nadu Urban Population (1961-91)

Census Year Population Growth rate Level of Urbanization
Total Urban Urban
In Million % %
1961 33.7 9 2.3 27
1971 41.2 12.5 3.9 30
1981 48.4 16 2.8 33
1991 55.9 19.1 1.9 34
2001 62.1 27.2 4.2 44
Source: Census of Tamil Nadu, 2001
Such rapid urbanization has put a strain on existing infrastructure deficiencies in the state. The formation
of State Finance Commissions (SFC) every 5 years recommends principles to strengthen municipal
finances through assigned taxes, devolved taxes and grants in aid from the state. The 1992 constitutional
amendment delegates responsibilities for construction, maintenance and operation of infrastructure to
local bodies. The GoTN has substantially increased financial devolution to local bodies (SFC
recommended) which has permitted the ULB’s to maintain some operating surpluses on their revenue
account. Despite this, capital investments based on sector wise service norms for infrastructure fall short.
Thus ULB’s are encouraged to seek alternative sources of capital to supplement existing revenues and
also build in cost recovery into the municipal finance system by tapping institutional and market based
financing.
The coverage of UIDSSMT over the admissible components of ULB’s in Tamil Nadu include:
(a) Urban Renewal i.e. redevelopment of inner (old) city areas [this would include items like
widening of narrow streets, shifting of industrial/commercial institutional establishments
from non-conforming (inner-city) to `conforming’ (outer-city) areas so as to reduce

congestion, replacement of old and worn-out water pipes by new/higher capacity ones,
renewal of sewerage/drainage/solid waste disposal systems, etc];
(b) Water Supply and sanitation
(c) Sewerage and Solid Waste Management (including hospital and industrial waste);
(d) Construction and improvement of drains/storm water drains;
(e) Construction/ Up-gradation of roads, highways/expressways;
(f) Parking lots/spaces on Public Private Partnership basis;
(g) Adequate street lighting and controlled hoardings;
(h) Conservation of heritage areas;
(i) Construction of Abattoirs and electric crematoria;
(j) Preservation of water bodies.
1.7 Scope of Work

The detailed scope of work as envisaged by Directorate of Municipal Administration is stated as follows:
a) Study of existing setup of ULB and an analysis of various projects executed or taken in
hand to formulate the background. The CDP should have future vision for the city in light of
its strengths and weaknesses.
b) Situation analysis, with regard to demographic and economic trends in the ULB and their
implications for ULB governance and service delivery systems and structures referring to
the jurisdiction of town level agencies involved in provision and regulation of urban public
services (i.e. water supply, sewerage, sanitation, solid waste management, road network,
urban transport, street lighting, redevelopment of inner (old) city area of the town, basic
services to urban poor and other social infrastructure). The financial status of the
municipality and agencies concerned with service provision including an analysis of their
credit worthiness and efficiency of the institutional framework.
c) A future perspective for the town area clearly showing the direction of change as well as
economic and basic services vision. (Sectoral agenda, reform agenda, quality of life, urban
services, social inclusion etc).
d) Alternatives and development strategies for economic development, governance, landuse,
urban poor, core municipal infrastructure, urban environment and cultural heritage with
proper prioritization criteria and linkage with Reform Agendas. Preparation of a phased
action plan with targets for physical and financial investments, reforms, capacity building
project identification and prioritization.
e) Assess the demand for the projects listed out by these Municipalities and analyze demand
for the next 25-30 years.
f) Financial Assessment of the ULBs an assessment of local finances (past 5 years) in terms
of sources and uses of funds, base and basis of levy, revision history and impacts. State
assignments and transfers base and basis of transfer and its predictability; uses of funds
outstanding liabilities (loans, power dues, pension etc.) and, a review of revenue and
service management arrangements. Levels of service, coverage and quality of municipal
services in both poor and non-poor localities. Staffing and management arrangements in
delivery of services.
g) Outline the issues of revenue realization, quality of existing assets in relation to service
levels and coverage, and institutional constraints. Develop quick indicators of performance,
based on –
• Current coverage and additional population in the medium term (10 years) and unit costs,
indicate town level investment requirement for upgradation of infrastructure.
• To improve service coverage and asset quality.
h) Preparation of comprehensive Asset Management Plan and use fiscal notes policy analysis
to assist in making informed investment choices to achieve sector/ city goals.
i) Define priority assets and indicative costs of rehabilitation.
j) Conduct fiscal impact analysis of investments: life cycle O&M costs, revenues from project,
and costs/ impacts on finances and of not doing the project
k) Explore funding options for rehabilitation of facilities.
l) Prepare a Financial and Operating Plan (FOP). The FOP is a medium term framework of
the ULBs, and shall present the following.
m) Assess the impact of upgrading these as municipalities from town panchayats.
Additional data to be collected :
• Break-up of energy cost on water supply, street lighting and other EB charges
etc.
• Salary for all the departments including staff and payments to private operators
• Finding out the benchmark cost i.e. at ideal condition what will be the cost of the
identified investments, a table indicating the investment plan for nest 5 years with
identified source of finance.
Areas of reduction of expenditure:
• Energy audit resulting in savings in energy
• Leak detection resulting either in connections or in the tariff (or) maintaining the
same supply and achieving a reduction in energy cost.
• Privatizing the MSW collection and identifying a BoT operator for eliminating,
composting etc. items for revenue can be identified.
• Laying of cement concrete road/ fly ash and savings on maintenance cost
resulting in increasing operating surplus.
• Water recycling/ reuse.
• Rejuvenation of tanks and reduction of cost/ liters of water produced
• Privatization and option for revenue rising.
Options for increasing the revenues through non-traditional methods including land
development for raising revenue (not the traditional commercial complexes) and
suggestions for improvement of revenues.

n) Initiate consultations with council and local stakeholders on the priorities; redefine priorities
(rerun FOP if required) and work with the Council to resolve on adoption of the City’s FOP
and CCP actions.
o) Draft Report and Final Reports are proposed to be presented to the Council.
p) Finalize Action Plan for the Town, with a resolution from the Council on the priorities and
commitment to implement revenue and management improvement measures.
q) To prepare MoU between ULB and State Level Nodal Agency to implement UIDSSMT/
IHSDP.
r) To assist and encourage full participation and formulate consensus within the town to
arrive at an adequate, appropriate and agreed strategy. The objective of this assistance is
to ensure that the process receives adequate and appropriate methodological and
technical guidance in examining the full range of environmental, social, economic and
health issues in the city and through communication, consultation and consensus building.
s) To review all studies, plans and previous experience in the town, government, quasi- or
non-government, academic or private sector. This will include economic development,
urban and financial management, environmental protection, municipal service delivery,
slum improvement, social development and any other relevant initiatives or studies.
t) To analyze findings and draw out useful lessons to inform the Action Plan. The process
shall primarily focus upon the areas of concern that emerge out of the CDP process.
Indicative focus areas are:
Urban Economic Development
Social Assessment
Urban Infrastructure
Human Resources and Institutional Issues
Financial Management
Urban Performance Indicator
Environmental Management
At all stages, the consultants will have to encourage the institutionalization of the planning methodologies
and processes in the ULBs. This includes identifying and working alongside counterparts, involving and
supporting stakeholders in the working with new methodologies, assisting the management of the
process and building constructive relationships with key stakeholders. This must be followed with proper
documentation.
1.8 Directorate of Municipal Administration (DMA) –TNUDP-III Project

In the State of Tamil Nadu, Directorate of Municipal Administration (DMA) is the nodal agency
responsible for planning and management of municipal government, be it Municipal Corporations or
Municipalities of various grades. DMA has been entrusted with responsibility of capacity building of Grade
– III municipal towns for which preparation of CDPs is a must, taken under the aegis of TNUDP-III
Project.
DMA intends to strengthen and improve financial position for effective capital investment management
and urban service delivery in selected Grade-III municipalities. These towns are service centres offering
marketing, physical and other social infrastructure facilities to the surrounding rural areas. These centres
have been chosen by DMA as they have great potential for future growth and immediate implementation
of financial reforms in these centres are necessary so that these ULBs can join the mainstream of urban
development in the State.
The objective of the TNUDP-III Project is to improve the delivery of urban services through enhancing the
quality of urban infrastructure and strengthening the industrial and financial framework. The proposed
continuing project would build on and consolidate the achievements of TNUDP II, continuing to improve
urban infrastructure services in Tamil Nadu in a sustainable manner.
To maintain the tempo of TNUDP-II and consolidate the achievements and sustain the benefits accrued
from the earlier programmes, and further strengthen, upgrade and enhance the levels of capacity and
capabilities developed so far and to support the next generation urban reform strategies with a focus on
improving urban infrastructure and reducing urban poverty, a five year TNUDP-III has been proposed
with World Bank assistance to the tune of US $ 300 million.
DMA has entrusted Infrastructure Professionals Enterprise Pvt Ltd (IPE) with the responsibility of
preparation of CDPs of 10 Grade-III municipalities viz., Anaiyur, Avaniyapuram, Ambasamudram,
Gudalur, Kayalpattinam, Keelakarai, Rameswaram, Thirupparankundram Thiruthangal and
Vikramasingapuram.

CHAPTER - 2
CITY VISION AND THE REGIONAL CONTEXT

2.1 Introduction
Formulating a CDP involves envisioning the city future through a SWOT analysis. At the same time to
provide perspective to this vision, references have to be drawn from the larger context so as to
demarcate aspects that will help in realizing the vision. The State, district and taluk have accordingly
been taken up for the study so as to strengthen the city vision and are brought out as follows.
2.2 The State Context: Inputs
2.2.1 Political – Historic
Politically and historically, the State has been ruled from ancient times to present without being war torn.
Ancient history representing Dravidian culture saw the emergence of four great kingdom’s which rose to
th
eminence and patronized meaningful growth till the 10 Century. These were the Cholas, Cheras,
Pandyas and the Pallavas. A short unstable Muslim rule, the arrival of the East India Company later
substituted by the British Empire were happenings in the transition to India becoming independent in
1947. The erstwhile Madras Presidency lost Andhra Pradesh initially (1956) and Karnataka and Kerala
th
subsequently (1967) got renamed Tamil Nadu and has today emerged as the 4 largest state, with a
44% urbanization level and districts which have consistently been changing boundaries (Map 1).
Long periods of peacetimes in the State have yielded rich dividends in buildings of archaeological and
architectural interests specially of temple buildings (3000 in numbers), sites, including two UNESCO
identified World Heritage Sites at Mahabalipuram and Thanjavur. State archaeology department is further
protecting buildings and towns spread over several locations to safeguard and conserve them. A part of
this heritage is also located in and near the selected town Kayalpattinam (Thoothukudi District) and
within the six districts studied for CDP formulation.
2.2.2 Urban Growth - Governance
Urban growth in Tamil Nadu has shown upward trend growing 145% from 1961 which had 339 towns to
832 towns in 2001 (Table 2.1). As a proportion too the urban population has increased from 27% in the
same period to 44%.
Table 2.1: Urban Population of Tamil Nadu, 1961-2001

Year No. of Urban Urban Decadal Annual Growth
Towns Population Population (%) Growth (%) Rate (%)
1961 339 89.90 26.69 22.59 2.04
1971 439 124.64 30.26 38.64 3.27
1981 434 159.5 32.95 27.98 2.47
1991 469 190.77 34.15 19.59 1.79
2001 832 272.42 43.86 42.79 3.56
Source: Census of India, 2001

Source: Administrative Atlas- Census of India 2001, Tamil Nadu

Map 1: Administrative Transformation in Tamil Nadu (1951-2001)
The Tamil Nadu urban frame provides a picture of how the urban units are disposed (Fig 2.1). Together
the Corporations, Census Towns and Municipalities constitute nearly 25% of the total urban units.

Fig 2.1: Urban Frame, Tamil Nadu

Fig 2.3: Distributions of Towns by Size Class 2001, Tamil Nadu
Predominantly urban to predominantly rural districts (Fig. 2.2) indicate that half of the thirty-one districts
have higher proportion of (>50%) of urban population. Of these six of them are aligned along the Kerala
border, three surrounding Chennai and including it are aligned along the Bay of Bengal coastline, with
Thoothukudi lower down. This leaves the other four as landlocked districts of Madurai, Salem, Erode and
Tiruchchirirapalli which are more urbanized.
28
25 4
5 67 26
4
79 60 32 56 5
Urban Reference District
Source: Administrative Atlas of India, 2001
Note: Figure below districts indicates the number of towns.

Fig. 2.2: Proportion of Rural and Urban Population, Tamil Nadu
The state has a governance system of Corporations (6 No.s.) for larger urban areas, Municipal Councils
(152 No.s.) for smaller urban areas, Town Panchyats (385) for areas transiting to urban from rural and
village panchayats for the rest. District headquarters are named after the district. Taluk is the sub-district
level.
Towns in the state are small sized (Fig 2.3) but poised for growth. Urban issues resolved here will have
less chance to magnify if dealt with early and into a monitored future.
Some notable indicators are the State’s sex ratio of 986 females per 1000 males, growth rate of
11.2% decadal, population density of 478 persons per square km, and a slum population of 16.5%.
The sex ratio and growth rate have increased overtime which is a positive trend. Census 2001 provides
records of slum population in towns with 50,000+ population. Slums are the downside to urban growth.
Tamil Nadu’s economy and infrastructure is well placed for future growth. It has 24 National highways of
2,000 km length, a rail length of nearly 7,000 km with 690 railway stations, 3 major and 8 other ports and
air links to Chennai across 20 countries with more getting added with the new aviation policies of the
government.
2.2.3 Location - Geography

Map 2: Location Map of Tamil Nadu
Tamil Nadu is the southernmost Indian State with
the Bay of Bengal on its east, Indian Ocean on its
south, Western Ghats on its west and the
adjoining states of Karnataka, Andhra Pradesh
and Kerala on its north and west. Its geography is
diversified and has coastal plains, tropical forests,
river valleys and hills.
The state is defined by Kanyakumari at southern

tip, Pulicat lake at the northern, its eastern tip is
Kodikarrai (point Calimere) and the western tip is
Madumalai Sanctuary, with their respective
latitudes at 8° 5’ N and 13° 35’N and the
respective longitudes at 80° 20’ East and 71° 15’
E. Its five physiographic divisions are
mountaneous (Kurinji), forests (Mullai), Arid
(Palai), fertile (Marudham) and coastal (Neidhal).
Eastern ghats of low rocky hills are another
mountain chain in the state. Main river Cauvery
760 kms long flows through the entire breadth of
the state, with other rivers being Palar, Pennar,
Vaigai and Tamirapani.
The state has the highest urbanization level, is

the sixth most populous and the eleventh most
dense. A number of urban corridors have begun
to emerge along with large urban agglomerations.
Madurai is one of such urban growths. The state
also has a number of national highways which
impact its development (NS NH7 being one of
them) Source: Administrative Atlas- Census of India 2001, Tamil Nadu
2.2.4 Demography – Economy
The state occupational structure shows 50% primary sector workers, 23.6% secondary and 26.1%
tertiary sector workers. Share of agricultural income in the GDP has declined from 25% to 18% during
1994-04, with a consequent rise in urban incomes in the other two sectors.
Literacy levels are getting raised, there is improved life expectancy at birth and fertility rates are declining
which spells out human development achievement. Ditto for gender development (Table 2.2). Other
references for Sex ratio, Literacy, Female literacy and % Main workers can be drawn for the 6 studied
districts as given in Table 2.3 for getting a comparative statistics.
Table 2.2: Indices of Human Development and Gender Development

S. No District HDI Value GDI Value

1 Chennai 0.757 0.766
2 Kancheepuram 0.712 0.71
3 Thiruvallur 0.654 0.651
4 Cuddalur 0.644 0.643
5 Villupuram 0.587 0.582
6 Vellore 0.658 0.655
7 Thiruvannamalai 0.612 0.608
8 Salem 0.626 0.625
9 Namakal 0.636 0.631
10 Dharmapuri 0.584 0.582
11 Erode 0.658 0.656
12 Coimbatore 0.699 0.697
13 Nilgris 0.685 0.686
14 Tiruchirapalli 0.671 0.671
15 Karur 0.647 0.641
16 Peramballur 0.596 0.592
17 Thanjavur 0.63 0.629
18 Nagapattinam 0.654 0.652
19 Thiruvarur 0.637 0.633
20 Pudukkottai 0.618 0.615
21 Madurai 0.661 0.661
22 Theni 0.628 0.628
23 Dindigul 0.641 0.638
24 Ramanathapuram 0.629 0.626
25 Virudhnagar 0.651 0.649
26 Sivagangai 0.64 0.635
27 Thirunelveli 0.658 0.656
28 Thoothukudi 0.703 0.703
29 Kanyakumari 0.711 0.711
State 0.657 0.654
India 0.571 0.533
Source: Tamil Nadu HRD 2003
Table 2.3: Reference Districts, Tamil Nadu: Comparative

N District Pop Area Growth Density Sex Literacy Fem Main
(sq.k 1991-01 per/sq. Ratio (%) Lit (%) Worker
m) (%) km s (%)
1 Madurai 2578201 3693 7.41 698 978 77.8 69.35 36.93
2 Virudhnagar 1751301 4281 11.9 409 1012 73.7 63.64 45.82
3 Ramanthapuram 118760 4181 6.12 284 1036 72.96 63.36 36.5
4 Thoothukudi 1572273 4624 7.99 340 1050 81.52 75.13 37.44
5 Tirunelveli 2736988 6809 8.88 400 1042 76.09 67.43 41.14
6 Theni 1093950 2871 4.25 381 978 71.58 61.19 43.3
Source: Tamil Nadu Census (2001)
Map 3: Tamil Nadu Reference
Districts

Map 4: Physical Map of Tamil Nadu
Table 2.4 : Tamil Nadu Districts – According to the Levels of Poverty

Poverty Ratio Range No. of Districts Name of Districts
High poverty (> 40 %) 6 Cuddalore, Thiruvanamali, Dindigul,
Thoothukudi, Thirunelveli, and Kanniakumari
Moderate Poverty (30-40%) 5 Chennai, Vellore, Salem, Thanjavur, and
Madurai
Low Poverty (<30%) 11 Kaancheepuram, Dharmapuri, Nilgiris,
Tiruchy, Pudukkottai, Sivagangai,
Coimbatore, Virudhunagar,
Ramanathapuram, Nagapattinam & Erode.
Source: Tamil Nadu HRD 2003
Poverty studies (Table 2.4) show high to low poverty districts; coastal districts appear economically better.
Low income and BPL population correlate as several town level studies have shown.

High literacy, poverty and high marginal workers in the Worker Participation Rate (WPR), a restructuring
economy going away from primary sector, and a fast urbanizing community pose questions for further
course in policy. Diversifying agriculture, entrepreneurship in farm and non-farm based activities;
exploring tourism as a growth agenda for the state’s natural/manmade heritage tourism appear viable
options to promote. Other non invasive, service-based economy should be appropriate and put on offer.
Map 5
Code District Code District

1 Madurai 4 Thoothukudi
2 Virudhnagar 5 Tirunelveli
3 Ramanathapuram 6 Theni
Source : Working Paper No. 1
R.J. Chelliah and K.R. Shanmugam

2.2.5 Infrastructure – Industry
The state has a well endowed road and rail network (Map 5) which has been outlined for the six districts
being studied.
Tamil Nadu is India’s third largest economy with strategic choices for Electronics, Software, Auto parts,
Agro-food processing, Chemicals, Mining, Leather, Textiles, Road-power-port development. The
industrial policy delineates scenario, policies-projects, scale, location and incentives in specially designed
parks-complexes-zones under state sponsored institutions.
2.3 The District Context: Inputs

2.3.1 Location – Geographic
Thoothkudi district, once a part of Tirunelveli district, came into being as a separate district in 1986,
bringing with it, eight taluks viz., Kovilpatti, Vilattikulam, Ottapidaram, Thoothukudi, Srivaikuntam,
Thiruchendur, Sathankulakm and Ettayapuram. Their geographical area covers 4621 sq.kms and the
district is positioned between 8° 3’ and 9° 37’ north latitude, 77° 72’ and 78° 36’ east longitude.
The district has a total population of 15,72,273, 42% being urban and the remaining rural. It is surrounded
by the districts of Ramanathapuram, Tirunelveli, Virudhnagar and the Gulf of Mannar on its east (Map 8)

Map 7: Taluka Map of Thoothukudi District
Rivers Tamirabarani, Vaipar, Manimuthur and Karumeni irrigate the district. NH7, the NS corridor passes
partially through the district at the western side; besides NH 7A connecting Tirunelveli to Tuticorin; SH 44
from Sankarankovil to the coastal end at Vembar; SH 40 from Tirunelveli to Kayalpattinam which is the
coastal municipality for which the present CDP is being formulated. As the district is fairly large, the road
and rail network is more dense and organized at the southern end of the district, towards the urban taluks
Thiuchendur and Thoothukudi. (Map 8)
The district has a coastline of 164 kms, 2.5% land under forests, 41% under crops with around 70%
workers in agriculture occupation. Important crops are cholam, cumbu, ragi, varagur, samai and cash
crops of cotton, chillies, sugarcane and groundnut. Palmgur or jaggery, Banana and vegetables are
cultivated in the taluks of Tiruchendur, Srivaikundam, Sattankulam and Vilaithikulam. A large amount of
land, attributed as waste due to the sea air, is also where salt production takes place contributing
30% of the salt produced in the country. Tuticorin Port is a major catalyst for GDP growth in the
region exporting raw material and products to 20 international countries. Certified as International
status, it handles 1600 cargo vessels and 2 crore tonnes of cargo.
Prawn culture, deep sea fishing, pearl and chunk fishing are other economies practiced in the
district and technical support in the form of education/training/research institutions/fishseed
farms/processing is made available through the public sector.

Map 8: Thoothukudi District showing the linkages

Map 9: Administrative Map, Thoothukudi District

2.3.2 Urban Growth – Governance
Thoothukudi district has 2 Municipalities (Thoothukudi and Tiruchendur), 26 towns and 436 villages in the
district. Thoothukudi district is primarily rural (42.3% urban population against 57.7% rural) but
urbanizing. Most urban units are clustered along the coast in the two urban taluks with urban growth
moving inwards along state or national highways. Urban growth is very sparse towards the mid and north
of the district. Total population in the district is 15,72,273. Ottapidaram is totally a rural taluk, with
Sathankulam, Ettayapuram and Srivaikuntam also showing high proportion of rural population (Table
2.5).
Kayalpattinam, the municipality under reference is one the towns aligned long the coast facing Gulf of
Mannar as does Tiruchendur, the other municipality in the Taluk, which is also the taluk headquarter.
There are 3 such urban areas which are coastal, another three (Arumganeri, Kanam and Athur) which
agglomerate with the former, and the remaining three (Nazerath, Thenthiruperai and Alwarthirunagiri)
which are more westwards, of which two abut the reserve forest area. (Map 10).
Map 10: Tiruchendur Taluk, Thoothukudi District Urban growth in the
district is based on
the economy from
Industry, Port activity,
Salt pans and
Agriculture. Power,
Fisheries, IT and
Chemicals are the
main domain for
Industry; Kovilpatti
and Thoothukudi are
locations for the
Industrial estates set
up by the state
government
(SIDCO/SIPCOT);
Ottapidaram taluk
produces readymade
garments; a number
of small scale
industries (2500
units), are engaged in
production of various
items from both
resources based and
other material.
rd
The Port (3 largest
container terminal in
India), facilitates
export to several
international
destinations and is
being perceived as a
major catalyst for IT,
Source: Administrative Atlas, Census of India, 2001 Tourism and trade
growth in the region
following the laying of
the undersea cable landing station (initial bandwidth 20 going to 160 gigabits per second) as well as the
execution of the Sethusamudram project.
Agriculture products, as paddy, cotton, groundnut, fruits (bananas) which are grown in abundance add to
the GDP of the district.

Map 11: Urbanised Taluks in Thoothukudi District
Rural
Urban
Table 2.5 : Thoothukudi District; Taluk Boundaries, Urban Vs. Rural Taluks
Taluk Population Urban Population Rural Population
(Persons/Percentage) (Persons/percentage) (Persons/percentage)
Kovilpatti 262249 127127 135122
100.00 48.48 51.52
Ettayapuram 73991 12794 61197
100.00 17.29 82.71
Vilathikulam 135285 21633 113652
100.00 15.99 84.01
Ottapidaram 115254 0 115254
100.00 0.00 100.00
Thoothukkudi 405363 293995 111368
100.00 72.53 27.47
Srivaikuntam 191883 44723 147160
100.00 23.31 76.69
Tiruchendur 291428 150295 141123
100.00 51.57 48.42
Sathankulam 96820.00 14206.00 82614.00
100.00 14.67 85.33
Total 1572273.00 664773.00 907490.00
100.00 42.28 57.72
2.3.3 Historic – Political
Historically, Thoothukudi town was known for its pearl fishery and shipbuilding activity, and was the first
port of the country to launch a ‘Swadeshi’ ship whilst the country was under British rule. The seaport
developed during the Pandyan kingdom was taken over, in 1548, by the Portugese; later in 1658 it was
captured by the Dutch and in 1825 ceded to the British. The lighthouse built in 1842 marked the onset of
the harbour activity.
The district has deep associations with leaders, poets, warriors such Chidambaram Pillai, Subramanya
Bharti, Kattabomman who were great visionaries.
The name Thoothukudi is claimed to have been derived from Thoorthu (dig) and Kudi (drink) implying
wells as being the chief source of drinking water. Another interpretation is ‘thoortha’ being land reclaimed
from sea, and, ‘kudi’ meaning colony or settlement. Tuticorin was what the Dutch named the town as.
th
The association of the town with pearl fishery began in the 16 century (the Nayaks of Madurai, the
Nawabs of Karnataka, The Portuguese and the tribes known as “Paravars” who were the traditional
fishermen).
Pearl oysters attach to pearl banks (locally called ‘parrs’) and have been known to exist at Keelakarai
(which is one of the ten reference municipalities under this CDP formulation exercise), Thoothukudi and,
Kanyakumari ; the “parrs” of Thoothukudi have outnumbered other sites.
The seashore temple devoted to Lord Subramanya at Tiruchendur is a pilgrim centre, considered one
of the six abodes of the lord which also marked his victory over the demon Surapadma. It finds mention in
ancient literature of the Tamil Sangam period.
The district is suffused with heritage. Between Tirunelveli and Thiruchendur there are 9 out of the 108
Vishnu temples, which collectively are called Aalwar Nara Tiruppatikal, the first being at Srivaikuntham
th
and the 9 at Aalwar Tirunagari.
Some notable pilgrim centres, sites and historic places of note are:
• Nazhi Kinaru a well with sweet water central to another one which is brackish
• Sri Sankara Rameswarar temple (established during Pandyan Kings)
• Sri Vaikundapathy temple (established during Pandyan Kings)
• Panimaya Matha - Church built by Portugese in 1714
• Manapad - Roman Catholic Church with cross brought from Jerusalem
• Kzhugu Malai – jain cave temples known for its Jain architecture
th
• Murugan temple of Kalugasalamurthy Kovil built in 18 century
• Ettaiyapuram Palace where Pandayan Kings posted “watch keepers” who later became rulers of the place.
The palace built in 1565 marks the occasion.
• The group of nine temples
- Navarathirupathi at Srivaikuntam
- Natham near Srivaikuntam
- Thiruppulingudi near Nathan
- Perunkulam Thirukullanthai near Srivaikuntam
- Irattai Thirupatti near Srivaikuntam
- Thola Villimangalam (temple inside the teak forest)
- Theni Thirupperai near Alwarthiruagari
- Alwarthirunagari
- Thirukolar near Alwarthiruagari
• Korkai Port, now 5 kms inland, an ancient port city during Pandyan Kings.
• Athichanallur, archaeological remains of a civilization that existed near river Tamirabarani.
2.3.4 Demography-Economy-Human Resource
Of all the districts being studied, Thoothukudi is the third largest populated, second largest in area and in
the decadal growth rate (Table 2.3); has the highest sex ratio and literacy including female literacy. There
is need to perk-up the proportion of main workers by improving employment prospects in the district.
Comparative slum profiles show Thoothukudi as having a small proportion of slum dwellers (Table 2.6)
Table 2.6: Talukawise Distribution of Total Workers by their Sector of Economy

Taluk Total Workers Primary Primary (Total) HH Others
Nos WPR Cultivato Agri Nos % Nos % Nos %
% rs Labrers
Thoothukkudi 143241 35.3 3952 7724 11676 8.15 4228 2.95 12734 88.90
Tiruchendur 106251 36.5 6870 21927 28797 27.10 11227 10.57 66227 62.33
Kovilpatti 132516 50.5 13575 27691 41266 31.14 8425 6.36 82825 62.50
Sathankulam 39543 40.8 3416 9601 13017 32.92 7373 18.65 19153 48.44
Srivaikuntam 82651 43.1 12420 30445 42865 51.86 6521 7.89 33265 40.25
Vilathikulam 74272 54.9 16272 30896 47168 63.51 2421 3.26 24683 33.23
Ottapidaram 57525 49.9 10855 25136 35991 62.57 2542 4.42 18992 33.02
Ettayapuram 42812 57.9 6458 14482 20940 48.91 4403 10.28 17469 40.80
Total 678811 43.17 73818 167902 241720 35.61 47140 6.94 389951 57.45
Source: Census of India, IPE Analysis

The district economy is primarily rural with six of the eight being rural taluks.
• Percent workers to percent total population has a variation with urban taluks sharing 35-36 percent
against rural taluks, where it varies between 40 to 58 percent .
• Primary sector workers in urban taluks is only 8 percent for Thoothikudi and 27 percent for
Trichendur with Kayalpatinam and Santhakulam not showing large variation.More rural taluks are
Srivaikuntam and Ettayapuram. Very highly rural taluks are Vilathikulam and Ottapidaram.
2.3.5 Infrastructure-Industry
Industrial growth has been encouraged in the district. Twelve major industrial units (SPIC, TAC,
Dharangadhra Chemical Works, Sterlite, Madura Coats, Loyal textiles, Kilburns are some big names) and
quite large number of small scale units are registered, besides the PSUs such as Thermal Power Station,
Port Trust and Heavy Water Plant. Salt pans add to the production value (70% of the State and 30% of
the Country’s needs are met from here). Granite mining, pearl culture, sea food and port based economy
are other add ons.
The position with regards to infrastructure is as follows:
• An average water supply of 30-40 LPCD in urban units, with Thoothikudi consuming a total of 153 LL
whilst Tiruchendur was 19 LL. The population being denied access to potable water supply ranges
from 10% (in municipalities) to 45 percent in town panchayats.
• There is no sewerage system, a total quantity of 239 LL of sewage is generated in the urban areas.
• SWM : 59 MT with 83 percent efficiency. Being partially industrial in some areas, the compostable
waste is 52% with other components of waste being rubber and leather (10%), plastic (11%), glass
(9%), metal brick stone (6%), wood (6%).
• Environmentally, the large scale industry has marked 17 as red category, and 9 as orange category,
requiring control measures. Industrial emissions and air pollution are consequences.
• Discharge of industrial effluents affects surface and ground water as well as agriculture production,
shrimp farming and pawn culture.
• A number of aqua culture units along the coastal area are functioning in the district.
• 20 island in the Gulf of Mannar (under control of wild life department of the State Government) are of
declared Biosphere Reserve and Natural Marine Park. The group of islands constitutes
Thoothukudi, Vembar, Keelakarai and Mandapam, now endangered due to a deteriorating coral reef
eco-system, especially at Van, Koswari, Vilangushuli and Karashuli falling under the Thoothikudi
group.
Tsunami also can cause irreversible damage to the coastal environment besides the physical devastation
that was caused to 23 coastal villages and fisherman households.

Map 12: Tiruchrndur Taluk Showing Rail Road Network and Towns
Tamirabarani River
SH 40
6 5 2
Gulf of Mannar
7 3
9
Legend
1
Taluk Boundary
Water Body
Meter Gauge Railway

8 Line
Reserved Forest
Metalled Roads
Municipality
Town Panchayat
1. Tiruchendur
2. Kayalpattinam
3. Arumuganeri
4. Athur
5. Thenthiruperai
6. Alwarthirunagiri
7. Nazerath
8. Udangudi
9. Kanam

2.3.6 Historic Footprint- Heritage
Heritage resources in the district as discussed earlier are briefly stated here:
• The state department of archaeology have some protected monuments in Ettayapuram
and Ottapidaram taluks of the District.
• Tiruchendur temple, a renowned one devoted to Lord Muruga is located on the edge of
the sea, is presumed to have been built 1000 years ago and had constantly been
improved by the Pandya and Chola kings with the complex taking 72 years to build. The
temple structure is gigantic with a gopuram (300 yrs old) in the west.
• Srivaikuntam and Alwarthirunagari Vaishnav temples of ancient origin (dates not
known).
• Nava Thirupattis; 9 of the 108 holy shrines devoted to Lord Vishnu.
• Settlement within a 10’ high mud wall enclosure where women (called Kattai Pillaimars)
have never seen the outside world.
th
• Panchalamkurichi, fort of Kattaboman (17 century).
• Manapad: Remnants of the Holy Cross from Jerusalem enshrined in this 400 year old
church.
• Kazhugumalai: Jain temples with bas relief sculptures and a nearby rock cut cave
temple.
• Kulasekarapattinam: Muttaramman temple and site of the enactment of the war of
Ramayana every year on the beach during Dussera festival.
• Birth places of Chidambaram, Kattaboman and Bharathiyan.
A large population of floating tourists visit pilgrim sites, beaches, see marine life or are business visitors.
There is year round tourist activity in the cities during the festive period or otherwise. Yet there
has not been sufficient marketing for tourism growth or installing tourism infrastructure at
popular places.
2.4 Relevant District Profile
The district is slightly skewed towards a rural composition, yet there is insufficient irrigation facility
through surface water (rivers/canals). Tanks and wells remain commonly used sources. River systems of
Tirunelveli district help irrigate some areas in taluks Vilathikulam, Sathankulam and Tiruchendur.
Cropped area is 40% and forests cover 2.4%. About 38% land cannot be put to cultivation purpose; some
of the soil is sandy coastal alluvium (27%) followed by red loam (21%) and black soil (14%). Red loam
soil areas (near Tiruchendur) are locally believed to be free of crimes or land thefts and are good for palm
trees, cashew and other indigenous dry arid area forests. Important agricultural crops are Paddy,
Cereals, Pulses, Sugarcane / Jaggery, Groundnut and Gingelly, whilst cotton is an non-agricultural crop.
Industry, salt production and marine economy are important to the district.
Towns tend to cluster in the coastal southern part whilst the northern end (adjoining Virudhunagar
district) has sparsely located urban areas. Punnakayal, near Kayalpattinam is a centre for fish curing.
Thoothukudi is the main centre for deep sea fishing. It also has the State’s largest Thermal power station;
Industries are in Kovilpatti (NH 7 passes through), Thoothukudi and Puthiampur Village (Ottapidaram
taluk). Attempts are made to industrialize areas on the Western side of the district and to avail access by
NH7A and SH40 from Tirunelveli.
Kayalpattinam is closer to Tiruchendur, accessible by a Railway line as well as SH 40 coming

from Tirunelveli. It is located in the heartland which produced a number of freedom fighters during the
British regime.
2.5 Taluka Context: Inputs

Thoothukudi, the most urbanized, is also the highest populated; its location on the coast as an important
historic port (now modernised to international standard), and as the terminal end of the railway line as
well as NH7A has proved advantageous to the taluk growth. Tiruchendur on the other hand, has historic
significance and regional recognition as a Temple town devoted to Lord Muruga and located on the sea
face, unusual, as Murugan temples are sited on hills/.forests. Presumed to be ancient (from early
Christian era) and recorded in the hymns and poetry of Tamil Sangam period, it is an important
pilgrimage. Together, these two constitute the focal point of their taluka. Kayalpattinam, the reference
ULB, lies in Tiruchendur taluk (close to the headquarter town Tiruchendur) is very near to where River
Tamarabarni meets the sea.
Along the district’s coastline, various religious groups are historically linked to settlements; Manpad has
associations with Christianity, Kayalpattinam is Muslim dominated and Thiruchendur, Hindu. With
common objectives of dependence on the sea the religious configurations remain harmonious in all
sectors of the economy, occupations remaining central to social structures.
Positioning taluka futures has become a dilemma in view of a declining primary sector and an
almost oblivion pearl fishing/deep sea fishing/marine resource economy.
Marine activists advocate non-interference with marine eco-systems which have destroyed large
reserves of coral. The coast is now declared National Marine Park.
Industrialization plays havoc and inspite of Pollution Control Laws/Acts, industrial effluents
discharged find their way into the sea or leach into groundwater.
High literacy in the district points to preference for service sector jobs. The taluk shows a continuity of
urban areas along the sea coast. Together taken, these factors suggest the following:
1) The Coastal Regulation Zone (CRZ) should be adhered strictly and empty stretches should
remain natural, unurbanized and replete with sand dunes. Protection is possible by
preventing encroachment of fishermen huts. The study has observed that traditional patterns of
fishermen settlement would have to be substituted by new non-invasive settlements away from
the sea front. Urbanization is accompanied by real estate demand for sea front locations which
are prime in value. Fishermen Housing, under some pretexts, is usurped as real estate, as
examples in Maharasthra and Goa have shown.
2) A second zone be demarcated along sea fronts (which are available and accessible to public
the sea face being perceived as ‘public’ good to be enjoyed by all) which are recreational in
use (parks/beaches/playgrounds) Zones at S.No.1 and 2 would be NON-VIOLABLE Zones.
3) Shelter Zones/Structures be sited after due safety assessment considering disaster proneness
of the east coast (Tsunami/earthquake) for Disaster Management purposes.
4) Organized Fisherman stations along the coast be instituted which provide meteorological
data/other inputs to fishermen, as well as keep account of numbers gone to sea. This
would be a watchdog/safety enabling station function preferably under joint control of
coast guards-state govt.-fishermen associations.
5) Tourism Infrastructure, as sea side resorts for high-middle and low end tourists (eco-
tourism/business/pilgrim) should be encouraged at a sufficient scale backed with adequate
marketing to allow Tourism growth. North Indians, many who have never seen the sea state
Bombay as a favoured destination. This segment could be tapped by offering multiple
opportunities and attractive discount for short and long stay holidays at quaint seaside village
environment resorts as “never been before” environment.
These resorts integrated with travel and sightseeing in nearby areas would be popular to
budget tourists who form volumes in the business.
6) Sea fronting urban units almost like a chain should be planning for shared infrastructure
provision, such as roads/water supply/solid waste management/sanitation and concur on
financial /other arrangements in making this a reality.
7) Sea fronting urban units should explore sufficient local economic base which is service sector
oriented, environmentally less damaging, involves and empowers women (in view of the
high sex ratios in all the taluks), and can absorb a highly literate population. Special
emphasis should be placed on employment policies in the district/taluk/towns.
8) Make possible a connection between local livelihoods- heritage and tourism –women’s
empowerment- institutions imparting practical skills- seafront strategies – tourist infrastructure.
2.6 Inception Stage and the SWOT Analysis

The consultants visited Kayalpattinam on September 21, 2007 for a reconnaissance of the Municipality
area and for a consultative meeting cum workshop with the Chairman, Councilors and other major
stakeholders. Another meeting cum workshop was held in Madurai on October 16, 2007 for presenting
the inception report, under the Chairmanship of JCMA where ULB Chairman and state level concerned
functionaries were apprised, and views consolidated for the onward exercise of preparing the Draft CDP.
A record of these meetings is provided in Annexure - I.
The SWOT analysis and draft emerging vision for Kayalpattinam ULB is derived from this meeting
and as incorporated in the inception report. The ULB’s regional perspective and interconnections with the
district helped sharpen the Kayalpattinam Vision.
STRENGTH
• Kayalpattinam ULB is a part of the estuary of River Tamrabarani which discharges into the
sea and therefore has part of nature’s wonders within the jurisdiction. This can be a strength
for the town yet imposing responsibility for marine life/beach head and other environmental
safeguards the town must take.
• Railway line passes through the town before terminating at Tiruchendur.
• The town has metalled road network connecting to SH 40 which goes between Tirunelveli and
Tiruchendur.
• Presence of diverse religious communities has been continuously harmonious.
• Its beach is available to everyone with some parks developed alongside by the ULB. The
town having a sea face is an advantage.
• Presence of large industrial unit (the DCW Chemical works) helps in generating jobs for
workers.
• Diamond and gold jewellery making units are well established as a local business adding to
the city income.
• The town has historical connections and is known to be an ancient capital enjoying prosperity.
Later, in 842 A D it is stated to be under Khilji dynasty and is reputed to draw its name from
Kahira in Egypt which later distorted to its present name.
WEAKNESS
• Low level of infrastructure availability, especially poor sanitation, solid waste disposal,
insufficient street lights, poor drainage and roads.
• Lack of proper shopping centres of all hierarchies as, weekly markets, convenience shops,
shopping centre etc.
• Very high proportion of slum residents, slum population being 25% of all population.
• Lack of planned utilities and facilities, as, cultural centres/libraries/sports stadium.
• Lack of effective landmark buildings/lighthouse/icon symbol city identity or sense of pride.
• Absence of recreational facilities.
OPPORTUNITY
• Special integrated market for gold-silver-diamond jewellery making, displaying and
enlargement into a regional centre for shopping for jewellery.
• Special ‘haat’ like market for products made from natural resources, as palm fibre, articles
from palm trees, innovatively designed products from stone mat weaving and other locally
developed initiatives in the household industry.
• Create a special “Meena Bazar” for creating the peculiar environment of traditional Muslim
settlements.
• Special marine based markets for fresh sea fish, boat making, repair and servicng; seaweed
based health food production; shrimp/prawn farms or value added fishery in
bracking/freshwater tank/fish farming for fishermen community.
• Tourism based development, as small village like cluster resorts 100m away from high tide
line zone in ethnic traditional buildings using low cost technology, create view points, allow
boat rides, create ‘machans’, small amusement zones for children, food zones/plazas for
ethnic foods.
• Generally open up and liberalize the economy for outside tourists for them to take a ‘peek at
the sea’ and enjoy regional tourism in day trips, and get the town ready for services of
catering/transport/building accommodation/furnishing and managing tiny resorts to large
hotels.
• Arena for aquatic sports including training and managing emergencies.
• Disaster Management shelters.
• Improvement to HSCs.

THREATS
• Flooding due to improper drainage.
• Natural disasters (Tsunami/cyclones/typhoons/earthquake)
• Joblessness if delay in responding to economic opportunity
• Shoreline maintenance
• Environmental damage to mangroves
• Lack of Identify and sense of pride for the city
• Rapid decomposition in humid climate leading to aggravated problems due to lack of
sewerage and garbage disposal. Disease proneness.
• Slum growth
2.7 Emerging Kayalpattinam Vision
Leading Kayalpattinam growth from the front by aggressive pursual of a three pronged strategy
for developing local business in a) coastal based activity b) skill and natural resource based
cottage industry and c) tourism promotion for seaside resort experience and related activities
performed with eco-sensitive measures will help sustain the town’s growth.
2.8 Inputs from Kayalpattinam Vision: Proposals and Spatial Perspective
The proposals for the town has taken into consideration the following factors which have a bearing on the
proposal
• The vacant land available for development is about 200 hectares so a limited development
agenda can be introduced into the urban fabric. This implies using peri-urban areas for future
growth.
• The town configuration showing a central north to south development zone and an east to west
one, leaving eastern sea face fairly a vacant area is a positive sign. The other vacant land is near
ULB boundary in the northern and southern side.
The proposal for Kayalpattinam, based on the Vision has the following components.
1. Proposal for defining two sea face zones of (i) CRZ as a beach and (ii) a parallel running
recreational zone which will be a green zone with cashew plantation – childrens park –
exclusive women’s community centre and a women’s skill enhancement centre.
2. Tourism for ‘Sea Experience’ and Resort Zone
3. Business Zone of two parts (i) local micro businesses dealing with marine resources, and
(ii) local micro businesses dealing with skills, as jewellery making (which are value added
items) requiring security; and handicrafts (which express local traditions and are
displayed better in ‘haat’ like environments.)
4. At least one project which symbolises the towns’ inherent strength/quality, OR, a landmark like a
tall observation tower with a lift.
5. Special Fishermen Village planned holistically on a non sea facing site.
6. Disaster Preparedness Shelter Zone
7. Green Corridor along Major Roads (after reviewing onsite situation)

Map 13: Diagrammatic Proposal for Spatial Development
ATHUR
KAYALPATTINAM
ARUMUGANERI
KANAM

CHAPTER - 3
TOWN PROFILE
3.1 Town History and Growth
Kayalpattinam lies in the southeast part of Indian peninsula, on the shore off the Bay of Bengal at
35°6’ North and 78°6’ east and 6 metres (19 feet) above MSL. The town is spread over an area of
12.50 square kilometres and lies on the State highway between Tirunelveli to Tiruchendur and is also
connected via other major district roads to Thoothukudi (38 km), Tirunelveli (60 km) and Madurai.
Kayalpattinam is a Grade III Municipality with a population 33, 264 persons (2001 Census) spread
over an area of 1250 hectares.
Kayalpattinam is an ancient historical city of India. It is a Muslim dominated town situated in

Thoothukudi district (formerly it was in Tirunelveli district). The first settlement in Kayalpattinam dates
to 633 A.D, followed by the second settlement which took place in 842 A.D. Kayal was the name of the
place till the advent of Muhammad Khalji in 842 A.D. After his arrival, the southern part of Kayal was
named Kahirfathan (after Khalji's home town Kahira in Egypt). Kahirfathan, which is Arabic, slowly
changed to Kayalpattinam.
Kayalpattinam is situated near the Tambraparni River - about a mile from its mouth - in Tirunelveli
district (presently Thoothukudi district). Kayal means a very ancient place. Five thousand years ago, it
was the capital of second Tamil Sangam, called Kapadapuram. According to historians, Kapadapuram
was very close to Tiruchendur.
Fig. 3.1: Kayalpattinam - Beach Fig. 3.2: Kayalpattinam - Dense development
3.2 Climate and Physical Features
Most of the geographical area (74 percent) of Kayalpattinam comprises of sandy soil. The climate of
the town is generally hot and humid. The average rainfall is about 450 mm and the town receives
maximum rainfall during the South West & North East Monsoon. Average temperature is around 28°C
minimum and 35°C maximum.
Most of the geographical area (74 percent) of Kayalpattinam comprises of sandy soil. The climate of
the town is generally hot and humid. The average rainfall is about 450 mm and the town receives
maximum rainfall during the South West & North East Monsoon. Average temperature is around 28°C
minimum and 35°C maximum.
3.3 Demography
The population figures show an increasing trend over the years with the highest growth recorded
during the 61-71 decade. The growth rate for the decade 1981-91 was 3.75 percent which is the
lowest among the years under assessment. The growth rate has increased to 33.72 percent in 1991-
2001.

3.3.1 Population Growth Trends
Population Growth Population Growth Rate
35000
Population (nos)
1000
30000
25000 800
Percentage
20000 600
15000
400
10000
5000 200
0 0
1961 1971 1981 1991 2001 1971 1981 1991 2001
Ye ar s Ye ar s
Fig 3.3: Population Growth Fig 3.4: Decadal Growth Rate
Table 3.1: Population Growth Trend

Year Population Decadal Growth Rate Area (ha) Density (persons/ha)
1961 2,024 - 215 9
1971 18,925 835.03 5293 4
1981 23,544 24.41 2955 8
1991 24,428 3.75 1640 15
2001 32,664 33.72 1250 26
Note: The ULB land has undergone reorganization by the State Machinery and has decreased from time to time as shown in
the table.
The administrative limit of the town covers an area of 1250 Ha with a gross density of 26pph (persons
per hectare), as per the population in 2001. The population density is increasing over the years and
has increased from 9 pph in 1961 to 26 pph in 2001. The town density suggests that there is enough
room for densifying as suggested by guidelines for town development which recommends a density of
75-100 pph (persons per hectare) for towns with population less than 50,000 persons.
Fig. 3.5: Population Density
Population Density (persons/ha)
30
Population Density (persons/ha)
25
20
15
10
0
1961 1971 1981 1991 2001
Years

Table 3.2: Ward – Wise Population

Ward No. Population Percentage to Total Area Population density
Population (Ha) (Persons/Ha)
1 2,983 9.13 90.00 33
2 1,079 3.30 35.00 31
3 1,708 5.23 45.00 38
4 908 2.78 40.00 23
5 1,441 4.41 50.00 29
6 1,629 4.99 50.00 33
7 1,348 4.13 60.00 22
8 1,697 5.20 85.00 20
9 1,097 3.36 65.00 17
10 2,230 6.83 60.00 37
11 1,802 5.52 85.00 21
12 2,050 6.28 80.00 26
13 2,163 6.62 95.00 23
14 2,432 7.45 75.00 32
15 2,746 8.41 90.00 31
16 1,875 5.74 70.00 27
17 1,239 3.79 65.00 19
18 2,237 6.85 110.00 20
TOTAL 32,664 100.00 1,250.00 26
Source: Kayalpattinam Municipality, 2007
A ward wise distribution of population is presented in the table; the lowest percent of population is in
ward 4 and the highest in ward 1.
Map 14: Ward wise Population Densities in KayalpattinamTown
3.4 Literacy and Sex Ratio
The literacy rate has increased from 67 percent in 1961 to 77 percent in 2001, which is higher as
compared to the District (73 percent) and the State (73.45 percent).
Table 3.3: Literacy Rate
Year Literates Literacy Rate
1961 1,356 67
1971 10,910 58
1981 15,606 66
1991 17,829 73
2001 25,177 77
Fig 3.6: Literacy Rate
Literacy Rate
90
80
70
60
50
40
30
20
10
0
1961 1971 1981 1991 312001
DMA, GoTN INFRASTRUCTURE PROFESSIONALS ENTERPRISE (P) LTD
Y ear s
Table 3.4: Sex Ratio

Year Males Females Sex Ratio
1961 852 1,172 1,376
1971 8,345 10,580 1,268
1981 10,350 13,194 1,275
1991 10,753 13,675 1,272
2001 15,010 17,654 1,176
In 2001 the sex ratio was 1,176 females per 1000 males. The sex ratio of the town is higher when
compared to the state (986) and district (1033). This can be corroborated with the high literacy levels
observed.
3.5 Urban Economy
The town is 38 km from Thoothukudi, which is famous port. Kayalpattinam is known for its chemical
industries, salt pan, palm products and fishing. Many of the chemical exporting industrial units are
located in Kayalpattinam offering potential for trading centres. The municipality has developed and
beautified the sea shore as a recreational place by constructing parks, playground, and fountains. The
town has a floating population of nearly 1500 people who come to visit its attractive beach front
everyday.
3.5.1 Occupational Structure
There is some structural change in the occupation structure of the town over the years. Primary
sector has clearly declined from 13 percent (1961) to 0.32 percent (2001). Secondary sector as
in small household industry has decreased from 17 percent (1961) to about 2.4 percent (2001).
On the other hand the services sector has increased significantly from 70 percent (1961) to almost 97
percent (2001). The WPR has remained more or less constant over the years and is 25 percent in
2001.
Table 3.5: Occupational Structure

Sector No. of % to No. of % to No. of % to No. of % to No. of % to
persons total persons total persons total persons total persons total
work work work work work
force force force force force
1961 1971 1981 1991 2001
Cultivators & Agri 1,413 30 1,620 22 2,099 50 2,112 40 500 2
Labourers
Household 1,921 41 2,331 32 22 1 2,030 39 660 2.64
Industry
Others 1,372 29 3,353 46 2,038 49 923 18 23,804 95.35
Marginal - - - - 15 0.36 197 4 -
Workers
Total Workers 4,706 100 7,304 100 4,174 100 5,262 100 24,964 100
Non workers 3,554 8,566 4,332 5,264 24,226
Total Population 8,260 15,870 8,506 10,526 49,190
WPR 57 46 49 50 51
3.5.2 Commerce and Industry
Most of the commercial developments have taken place along West Great Cotton Road, Victoria
Extension Road, South cotton road. Commercial activity is also observed along the major roads
leading to Madurai, Tiruchendur, Palayamcottai and Ramanathapuram.

The outer areas of Kayalpattinam are developing with concentration of industries and allied activities
by agencies like DCW Factory. The total workers come under industrial activities are estimated to be
9800. The proposed area for industrial development is distributed at the end of the town along
Sahupuram road.
3.6 Land Use
About 84 percent of the town comes under the developed area category and the rest is yet to be
developed. The break –up of the land use is given in the table below.
Table 3.6: Land Use Distribution

S. No. Land use Area (in ha) % to Total Area % to Total Developed Area
1 Residential 703 66.95 56.24
2 Commercial 52 4.95 4.16
3 Industrial 17 1.62 1.36
4 Educational 58 7.81 6.56
5 Public and semi-public 82 5.52 4.64
6 Traffic and transportation 138 13.14 11.04
Sub Total 1050 100.00 84.00
Undeveloped area 200 16.00
Total 1250 100.00
Source: Kayalpattinam Municipality
3.6.1 Residential Area

Residential development in Kayalpattinam is mostly concentrated along the railway line and along the
major roads leading to Palayamcottai, Tiruchendur, Thoothukudi and Madurai. New residential
developments are proposed on the outskirts of Thoothukudi
3.6.2 Commercial Area

Commercial activities comprise only 4.95 percent of the total area and 5.7% (0.64 Sq.km) of the total
developed area. Most of the commercial development has taken place along West Great Cotton Road,
Victoria Extension Road, South cotton road, and, along the major roads leading to Madurai,
Tiruchendur, Palayamcottai and Ramanathapuram.
3.6.3 Industrial Area

Industrial area comprises 1.36 percent of the total area and 1.62 percent of the total developed area.
The outer areas of Kayalpattinam are developing with concentration of industries and allied activities
by agencies like DCW Factory. Industrial development is proposed along Sahupuram road.
3.6.4 Transportation
The land under transportation is an important component in relation to the growth of tourist, population
size, economic base of the town and its importance. The area under the circulation is 138 hectare and
comprised 13.14 percent of the total area and 11.04 percent of the developed area.
3.7 Spatial Pattern
3.7.1 Spatial Growth Trends/ Urban Sprawl
The growth of the town in the 60s has led to the concentration of economic activities in the Koman
Street (ward 1) where large number of household units are involved in fishing and associated
businesses. New developments are observed in ward 7 and vacant lands exist in the peripheral areas.
The lacking infrastructure deliveries may become impediments in furthering the sustainable growth of
Kayalpattinam.
Map 3.1: Spatial Growth Pattern KayalpattinamTown

3.7.2 Spatial Population Distribution
While the core town (adjoining SH) comprises of commercial activities, the residential areas originate
outwards from here. A large population resides in ward 10 near the State Highway. New residential
localities have developed in ward 7 along C.D.Nainar Street.
3.7.3 Future Growth Patterns
Growth is constrained on the sea front towards east of the town leaving future growth possibilities
towards westwards preferably acquiring land from peri-urban areas.
3.8 Emerging Issues

• The current population is largely concentrated in the core town area, resulting in enormous
stress on the infrastructure concentration in core area and deteriorating quality of life, apart from
increasing disaster vulnerability.
• Fringe settlements including rural area population; make a demand on the town's infrastructure
and the economic and other services of the town. These areas need to be considered while
planning for infrastructure development in Kayalpattinam as they would eventually constitute part
of the larger urban settlement.
• Commercial areas encroachment upon roads and public spaces has to be properly dealt with.
• Unsanitary conditions due to lack of proper infrastructure facilities, narrow streets with buildings
devoid of proper light and ventilation as some of the common problems seen.
• Natural areas and coastal areas would need special care and management
3.9 Population Forecast
The population of the town has shown an increasing trend over a period of time and has recorded the
highest growth in the last decade. Table below indicates the growth rate and the CAGR for the town.
Table 3.7: Population Growth Trend and CAGR

Year Population Decadal Growth Trend CAGR
1961 2,024 - -
1971 18,925 835.03 25.05
1981 23,544 24.41 2.21
1991 24,428 3.75 0.37
2001 32,664 33.72 2.95

Source: COI, (2001) and IPE Analysis
Table 3.8: Population Forecast

Year Arithmetic Increase Incremental Geometric Exponential
Method Increase Method Increase Method Method
2011 40324 48114 45755 85013
2021 47984 71353 64093 152110
2031 55644 102382 89779 272164
2036 59474 120818 106258 364055
2041 63304 141201 125761 486971
Source: IPE Analysis
Population Forecast - Arithm etic Increase Population Forecast - Increm ental

Increase
70000
160000
60000
140000
Population (nos)
Population (nos)
50000 120000
40000 100000
30000 80000
60000
20000
40000
10000 20000
0 0
2011 2021 2031 2036 2041 2011 2021 2031 2036 2041
Years Years
Population Forecast - Geom etric Increase Population Forecast - Exponential

Increase
140000
600000
120000
Population (nos)
500000
Population (nos)
100000
80000 400000
60000 300000
40000 200000
20000 100000
0 0
2011 2021 2031 2036 2041 2011 2021 2031 2036 2041
Years Years
Fig 3.7: Population Forecast (Arithmetic, Incremental, Geometric and Exponential Method)
The population growth rate indicates a increasing trend over the years. Arithmetic increase assumes
a continuation of trend at the prevalent growth rate and thereby gives a relatively lower projection
indicating that no efforts shall be made to boost the town’s economy. Incremental increase assumes
the increase is again nominal with slight improvement because of adding the decadal increments. The
third and fourth method assume faster rate of population growth with geometric progression,
presenting a case of growth where economic change brings employment into prospect and thereby
aggravates the growth process.

Exponential method is for cities where high in migration causes a spurt in growth usually doubling over
three decades. For population forecast for the town, we have considered its growth rate, compared it
to the state growth and district growth rate, the prospect from the economic impetus that the CDP
plans to make within a reasonable gestation period. It foresees the incremental method as a
reasonable forecast, atleast for the first fifteen years when it can be reviewed again for project
impacts, if any. For analytic purpose we are maintaining this for a 30 year forecast and keeping the
geometric progression forecast as a contingency.
Taking into account the above assumptions, population projection by incremental increase method
was considered. Increments for the decades 1961-71 to 1991-2001 were taken as the base and the
projected population is estimated to be 48114 persons in 2011 and 71354 persons in 2021. Population
projection is given below:
Table 3.9: Proposed Population

Year Population Projection
2011 48114
2021 71353
2031 102382
2036 120818
2041 141201
Chapter 4
Urban Infrastructure, Environment & Service Delivery

The Infrastructure profile of a town makes a direct reference on the quality of life within it. It’s one of
the crucial consideration for the town’s economic development and its investment climate.
Infrastructure services and its adequacy require an assessment be made of its coverage, quantity
and quality, as also the demand supply gap. The cost of delivering services and recovering that cost
is another matter for review. If ULBs are proposed to work on a given business model in future, they
have to work towards assessing their existing levels of infrastructure and service delivery and
measures to improve the same resulting in efficient cost recovery.
The following sections relate to an analysis of the above mentioned factors for the various services
within the town.
4.1 Water Supply
4.1.1 Source and Availability of Water
Kayalpattinam Municipality (KM) meets its water supply requirements through sub surface water
source under the Authoor Combined Water Supply Scheme. Water for the town is drawn from the
river bed of Ponnankurichi Tamirabarani River, with head work located 3kms. away from municipal
limit.
The source is being maintained by the TWAD Board and the distribution system by the KM. Water is
extracted from 80HP turbine pump sets and conveyed to the booster station at Authoor trhough
450mm PSC pipes. Water is supplied for two hours daily.
Table 4.1: Existing Situation Water Supply

Head/ Year 2007
Total Area of Kayalpattinam (Sq. km) 12.5
No. of House Service Connections 6200
No. of Households covered by House Service Connections (2006) 6,182
% of total households served by House Service Connections 60
No. of Commercial Connections 18
% PT Assessments with Service Connections 46%
Total Water Supply Capacity (Ground and Surface) (MLD) 2.2
Gross Supply as per municipal records(lpcd) 62.34
Gross Supply, considering 2007(lpcd) 53.65
Length of Distribution Net Work 17km.
Distribution Network Reach (% of road length) 53
Source: Kayalpattinam Municipality, 2007 and IPE Analysis
Map 15: Water Supply Coverage
Considering an optimum operation and utilization of these local sources and dependence on the
availability of ground water and controlled drawl, the present yield from the in-use bore wells and
open wells is only 2.2 MLD. However, with the long term goal of conservation of groundwater sources
these local sources cannot be taken into consideration in the assessment of the demand-supply gap
and capital facility requirements. These sources can only supplement the system.

4.1.2 Storage and Treatment Facility

The total storage capacity is of the order of 18.20 LL. Location of the OHTs is given below in table 4.2.
Water storage facility is ample considering the existing population, but more would be required in
future as per the growth of population.
Table 4.2: Location of Storage Tanks and Capacity

S. No. Location Capacity ( Lakh Litres)
Over Head Tank
1 Anna Nagar 0.10
2 Kayethemilleth Nagar 0.30
3 Utchimaakaliamman Kovil Street 0.60
4 Alagapuri 0.60
5 Ottadakarai 0.60
6 Komaanputhur 0.60
7 Arunachalapuram 0.60
8 Singithurai 0.60
9 Thekai Padaga Salai (Anna Nagar) 0.60
10 Rathnapuri 0.60
11 Thevu Street 2.00
12 Appapalli Street 2.00
13 Sulochanapuram 2.00
14 New Bus stand 3.00
15 Near Municipal Office 4.00
Total 18.2
Fig 4.1 Water Storage Tank
Pre-chlorination is the only type of treatment done before

water is pumped into the elevated storage reservoirs from
the river bed. Therefore, replacement of old water supply
network as well as water treatment plant emerges as a
foremost service in demand.
4.1.3 Water Transmission and Distribution
Water from the Storage tank is transmitted to the distribution network through feeder mains (200 mm
dia. cement concrete pipes). The distribution network branches out from the feeder mains and covers
a total length of 17 km. The distribution network varies between 100mm to 90mm dia. pipes made of
PVC pipes. Furthermore there are 127 public stand posts supplying water to selected wards. About 53
percent of the road length in the town is covered by the distribution network.
4.1.4 Consumer Connections
All the water supply service connections are of ½” and ¾” dia pipes. There are 6,200 connections, out
of which 6,182 (99.7 percent) are residential and 18 (0.3 percent) are commercial.
4.1.5 System Adequacy and Water Tariff
The gross supply in the town is at the rate of 62.34 LPCD implying that it needs to be improved by
more than 50 percent to bring it to 135 LPCD standards in a phased manner. Water is supplied for
two hours daily which is far less than the ideal situation of 24 hours. Moreover the supply gets further
reduced during summers owing to the shortage of supply from the source. The main reason for this is
unavailability of surface water sources and limited extraction of the ground water. Scanty rainfall of
the region further aggravates this problem.
Against a total of 13, 492 Property Tax Assessments in the town, there are 6,182 Service connections
(domestic), indicating that the service coverage is 46 percent with respect to Property Tax
Assessments. Moreover, the numbers of households in 2007 were 10250 (assuming household size
of 4), comparing the total house service connection, only 60 percent of the households are covered
under water supply system, explaining actually low coverage of the service.
The house service connections are charged at a flat rate of Rs. 50 per month for residential
connection and Rs. 100 per month for commercial connections with one time connection fee of Rs.
5,100 is collected and there is no collection of deposit for commercial connections.
4.1.6 Distribution Losses and Unaccounted Water Flow
There is significant water loss in the Kayalpattinam Water Distribution Cycle, from source to
consumer end. Kayalpattinam stated the system losses as ranging from 20 percent to 25 percent. It
is to be noted that identification of sources and the amount of losses is constrained because the
network maps and consumer databases are inadequate or not completely available.
Water losses may broadly be classified as physical losses and administrative losses. Physical losses
are due to leakages from old, damaged, corroded pipe lines/ connections and leaking joints and
overflow at overhead tanks. Consumer taps also cause significant waste of treated water.
Administrative losses are due to theft, illegal tapping of water, unregistered connections, faulty meters
and unrecorded supply due to poor records and billing errors.
The distribution network mostly of PVC material is damaged though they are not aged, and pressure
losses are reported. However, lack of adequate database and location maps of the network can only
hide the physical losses as the leaks can be underground too.
Though there is a need to initiate a Leak Detection Study and implement the recommended options,
for the program to yield results, it is necessary to have sufficient and reliable database regarding the
water supply systems. A good information base, willingness to follow-up on systematic replacement
of leaking pipes, defective meters and connections as well as tariff revisions, etc are critical to the
success of the program. Control on Unaccounted Water and loss minimization can be achieved
through prevention of illegal tapping, water metering, education and information management,
promotion of water conserving household appliances etc.
4.1.7 Demand Collection Balance Sheet
As per demand, collection balance statement collection efficiency of the municipality has remained
average since 2003; lowest was observed in 2005 (60 percent). Current collection efficiency has
remained higher than the arrears collection efficiency. A remarkable improvement in current
collection efficiency was achieved in 2006, when current demand and collection both were
Rs.4.84lakh (lowest when compared to other years demand).
Table 4.3: Demand Collection Balance Statement

S. No. Particulars FY03 FY04 FY05 FY06
A. Demand (Rs. Lakh)
Arrears 5.44 7.14 16.46 39.6
Current 18.55 37.55 37.68 4.84
Total- Demand 23.99 44.69 54.14 44.44
B. Collection (Rs. Lakh)
Arrears 2.14 1.83 4.82 27.24
Current 14.7 26.4 27.62 4.84
Total- Collection 16.84 28.23 32.44 32.08
S. No. Particulars FY03 FY04 FY05 FY06

C. Collection Performance (%)
Arrears (%) 39% 26% 29% 69%
Current (%) 79% 70% 73% 100%
Total- Collection Performance (%) 70% 63% 60% 72%
Source: Kayalpattinam Municipality, 2007 and IPE Analysis
4.1.8 Issues Emerged
Following issue emerged from the analysis of municipal water supply in the town:
Low Supply Levels: Low per Capita supply is noticed; the situation becomes worse in summer
season.
Inadequate Treatment Capacity: Kayalpattinam town has no treatment plant for water. Ground
water contains content of dissolved salts. The ingress of sea water is increasing gradually.
According to the municipal records hardness in drinking water has already crossed permissible
limit.
Inadequate Service Coverage: 60 percent of the households are covered by house service
connections.
Inadequate Network Coverage: Distribution network runs approximately 53 percent of the Road
Length. Considering the high population density within the core area, the network adequacy
demand, as a percent of road length, is low.
Rain Water Harvesting: The pattern of rainfall is erratic, therefore storing rainwater for
recharging should be explored. Unfortunately, no action has been taken in this direction by the
Municipality.
Need for Source Augmentation: The extraction of water from the river bed and sub surface
sources should be stopped and water should be supplied through surface water sources.
Need for Asset Management Action Plan: It is required to maintain an O & M Schedule, for
Water Supply Assets, for regular maintenance and energy consumption optimization.
4.1.9 Key Issues

There always remains a clear gap between the revenue collected and the operation and maintenance
cost. This gap generally remains due to following reasons:
• About 20-25 percent of total water supply is wasted due to thefts and leakage.
• Absence of proper mechanism of billing.
• There exists high pressure difference and excessive pumping is required to reach higher
areas.
• The existing income sources of the municipality are not enough to meet the growing demand
of water in the town. Tax revenues are providing resources to meet these needs for the time
being but, even to meet the demand for the projected population of 2041, dependence on
grant will not be adequate to fill the demand supply gap.
4.1.10 Demand - Supply Gap and Future Requirement
For KM the recommended standard of 135 lpcd water supply has been followed. An additional 15%
increase in population has been considered over and above, as contingency requirement. This also
takes care of additional commercial requirement for water, and, other transmission losses.
Table 4.4: Demand and Supply Gap

Year Projected Daily Water Demand Gap in Storage Treatment
Population with Supply MLD Demand Capacity Plant Capacity
15% Increase LPCD MLD MLD MLD
(2007) 53.65 2.2 1.49 1.8 -
2011 48114 90 4.98 2.68 1.66 4.98
2015 54294 108 7.33 5.13 2.44 7.33
2021 71353 108 8.86 6.56 2.95 8.86
2031 102382 120 14.13 11.83 4.71 14.13
2041 141201 135 21.92 19.62 7.31 21.92

Presently, supply of water is only 2.2 MLD against requirement of 3.69MLD creating a gap of 1.49
MLD (as per the standard of 90 LPCD). However, in order to meet the demand for the projected
population, the town would require an additional supply of about 6.56 MLD by 2021 and 19.62 MLD
by 2041. The town would require 7.31 MLD of storage capacity and 21.92 MLD of Treatment plant
capacities. Overall target of KM would be to ensure treated piped water supply to all its habitants in
the short term – i.e. by 2011.
4.1.11 Designing the Services
A summary of thumb- rules generally referred for designing water supply services include:
(i) Distribution is best in a grid pattern with interconnected mains keeping dead ends to a
minimum; this way any point is fed at least from two different directions. Smaller water supplies
may resort to tree system when smaller mains branch off from single trunk main.
(ii) Distribution should ensure equalization of supply throughout the area. If adjoining zones differ
in elevation by 15m-25m, then each zone needs a separate system. Zoning of water supplies
takes into account population densities/locality type/topography and the ease with which the
system can be isolated when leaks occurs.
(iii) When water supply is fed through a single reservoir, it is economical to place it at a central
place. Difference in elevation should be used to advantage when locating reservoirs at ground
level. Difference in pressure between same zones/same system should not exceed 3m to 5m.
Tail end reservoirs are desirable for the more distant direct locations, and are fed by supply
either by boosting or during lean hours.
(iv) Storage provision, as recommended should be for 24 hours water requirement of command
area at the reservoir site. Since a number of sources are used, at least one day storage is
expected (for any eventuality). Storage volume for 2041 projected water demand is suggested
along with provision for future augmentation.
(v) Various water zones for the town must be created to ensure proper coverage. As per practice,
R.C.C construction is used, proper protection ensured and unnecessary utility services,
disinfection, ground and security wall is provided.
(vi) Water losses need to be minimized. Classified as physical (due to leakage, old damage and
corroded pipes, leaking joint connections, overflow at OH Tanks, poor plumbing at consumer
end) or administrative (as theft, illegal tapping, unregistered connections, faculty meters,
unrecorded supply, poor recording, faulty billing) water audits and leak detection studies
become necessary to curb such menaces. An information base of reliable data (preferably GIS
enabled) can ensure efficient delivery and conserve a scarce resource.
4.1.12 Urban Indicators – Water Supply
Table 4.5: Urban Indicators – Water Supply in Kayalpattinam

S. No. Strategy Current Situation Benchmark
1 Per Capita Supply 62.34 LPCD 135 LPCD
2 T&D Losses/ Total Supply 20-25% 5%
3 Supply Frequency Daily 2 hours Daily 24 hours
4 Distribution Network Reach (% of Road Length) 53 100
5 Treatment Capacity/ Total Supply - 100%
6 Percentage of PT Assessments with HS 46 100
Connections
4.1.13 Effective Practices
Certain practices, adopted across countries could serve to guide ULB water supply systems in Tamil
Nadu including in the reference ULBs.
• Water audits for ascertaining unaccounted for water (especially in underground pipes)
• O&M Plan. Adopting an O&M Plan with a schedule; with private participation (e.g.
Management contracts).
• Mapping & GIS is important in laying of services, detecting dilapidation and renewing etc.
• Tariff Revision is essential to enlarging the coverage and recovering costs/debt
servicing/modernizing/installation of equipment etc.
• Performance Monitoring for better service delivery, consumer satisfaction and continued
service.
• Capacity Building and institutional strengthening Training needs for field staff is required for
operating, maintaining and servicing the water supply system.
4.1.14 Strategies and Time Frame

The following strategies and time frame has been adopted to overcome the identified gaps in water
supply sector.
Table 4.6: Strategies and Time Frame – Water Supply
S. No. Strategy 2009 2010 2011 2012 2013
1 Asset Management Plan
2 Leak Detection Plan
3 Mapping & GIS
4 Piloting 24/7 water supply
5 Source Augmentation
6 Coverage for General Households
7 Coverage for Slum Households
Source: IPE
4.2 Sewerage and Sanitation System
Sewerage, the core element of physical infrastructure, determines the environmental status of any
settlement. Development of appropriate sewage carriage system with efficient treatment is a pre-
requisite for facilitating balanced and harmonized development. Augmentation of existing systems/
treatment facilities as well as adoption of new technologies of waste treatment is now being focused
by every town, which aspires to cover its total population under sewerage network system. In Tamil
Nadu, TWAD Board is responsible for planning under-ground drainage system while for
implementation and operation and maintenance individual ULBs are responsible.
4.2.1 Current Disposal Systems
Kayalpattinam does not have a sewerage system for disposal of sullage and night soil. The disposal
system consists of septic tanks and public conveniences. Roadside drains, Pucca or otherwise, carry
all the liquid waste of the town. Untreated sewage is let out in to the low lying area which acts as a
breeding place of mosquitoes and flies creating health hazards and an unhygienic environment. Part
of the population of the town, especially slum dwellers and other low-income population defecate in
the open.
4.2.2 Coverage
80 percent of the house hold in town has septic tanks, serving approximately 26577 persons. With
respect to the Property Tax Assessments, the coverage is average of 74 percent. The present
sanitation facilities in the town include septic tanks and Pay & Use toilet.
About 26% of the households are devoid of adequate sanitary facilities. The lack of safe sanitation for
such a large population especially slum population is a matter of concern. It is advisable to the
Municipality, that it should make use of the funds under IHSDP/ BSUP/ UIDSSMT to make the city free
of open defection practice.
Table 4.7: Sanitation Facilities

Description Year 2007

Area of the Town (Sq.Km.) 12.5
Total Population (Lakhs) 0.33
No. of Septic Tanks 10,000
No. of Pay & Use Toilets 1
No.of Seats 6
4.2.3 Issues
(a) Lack of Sewerage Facilities and Associated Impacts
The absence of safe sanitation facilities for such a large population has resulted in occasional
outbreak of water borne diseases in the town. The associated impacts on human health to city
dwellers will increase.
(b) Mixing of Sewage with Storm water and Solid Waste in Several Areas
Absence of safe and adequate disposal systems has also led to the disposing of sullage and night soil
into the storm water drains and other natural water course in the town. In addition, the untreated waste
is let out into the sea creating a hazard to the environment.
As there is no sewerage facility the user charges cannot be imposed and municipal finance is
affected. Uncontrolled solid waste dumping and encroachments results in silt formation; open SW
drains become easy dumping places of waste in the town and often block flow in the drains resulting
in overflows.
(c ) Demand and Supply Gap-Future Requirement
It has been recommended that planning for sewage treatment should be considered at 80 percent of
the total water consumption. Accordingly @ 108 LPCD, for the projected population of 1.6lakh persons
(year 2041), the sewage generated will be to the tune of 16.9 MLD for which the treatment facility
needs to be provided.
4.2.4 Demand and Supply Gap-Future Requirement
Planning for sewage system considers 80 percent of the water consumption. Accordingly for 108
litres per capita sewage generated per day in 2041, 16.9 MLD of treatment facility would be required
for the town.
Table 4.8: Demand-Gap Analysis
Year Population Per Capita Sewerage Treatment Plant Capacity
(Persons) Generated (LPCD) (MLD)
Current Status 42.92 -
2011 48114 72 4.0
2015 54294 72 5.8
2021 71353 72 7.71
2031 102382 86.4 10.2
2041 141201 108 16.9
Source: IPE Assessment
Note:
1. Assuming there is no increase in road length network. Future growth will be as infill re-densification
2.The length of the distribution network will depend on spread of future urban areas and the
associated network of roads.
Table 4.9: Strategies and Time Frame – Sewerage and Sanitation System

S. No. Strategy 2009 2010 2011 2012 2013

1 Asset Management Plan
2 Sewerage for unserved areas
3 Mapping & GIS
4 Network Coverage of Slum Households
5 Pilot Project for Decentralised STP
4.2.6 Performance Indicators – Sewerage & Sanitation
Table 4.10: Performance Indicators

S. No. Strategy Unit Current Normative
Status Standard
1 Roads covered under UGD Network Percent - 85
2 Sewage Treatment Capacity with respect to Water Percent - 80
Supplied
3 Water Supply Connection Having Access to UGD Facility Percent - 85
4 Assessment having access to UGD Facility Percent - 70
5 Population Covered by UGD (Year 2007) Percent 60 85
6 Property Tax Assessment Covered under Septic Tanks Percent 74 -
4.2.7 Designing the System

A summary of thumb-rules generally referred for designing sewerage services include:
(a) Sewage treatment is dependent on how the final product has to be utilized and who will
regulate it to ensure it is of un-polluted form. The by products of sewage treatment (manure,
gas and liquid waste) can be used, as done in different cities in India.
(b) Treatment plants require to be decentralized to meet neighborhood needs for all the end
products. Large scale treatment plants should be designed and completed in not more than 1-2
years and should normally meet the requirements of a 30 year period.
(c) Reduction of BOD, SS, and total coliforms are expected of the sewage treated for primary,
secondary and tertiary levels. Settled sewage or sludge should be mixed with peat/ manure,
composted completely (ensuring dehelminthization) and then sold for use on farms.
(d) Conventional Systems require large amount of land for treating effluent before
discharging. The sewerage system developed on “Green” principles, envisages
development of decentralized STPs as friendlier solutions, both in facilitating compact
thereby low energy development and utilizing new technology spread over smaller land
area whilst eliminating the need for digging deep sewers which have proved hazardous.
4.2.8 Suggestions
• Low income households should be taken up for sanitation on a priority.
• A regular sewerage and storm water system should be designed and laid in the town.
• Buffalo / cow dung and other objectionable material entry into sewers have to be prevented.
• As far as possible sewers should be cleaned with modern suction and other jet washing
machines reducing manual labour to a minimum and only in dire circumstances.
• Unauthorized connections (if existing) have to be detected/ penalized and later regularized
within short time frames.
• People, especially slum dwellers have to be prepared to accept sanitary system and
understand how to maintain hygiene. Messages needs to spread through advertisement and
other local media on safe sanitation methods.
• O & M plans are important and private management contracts can be operationalized for the
same.
• Assets created in the town need to be well managed.
• Mapping and GIS are important for detailing the sanitary system, repairing it, and renewing it
after it has outlived its life.
• Needless to say that performance of the sewerage system has to be consistently monitored.
• Sanitation facilities in slums in KM could be covered under IHSDP or BSUP schemes.
• Slum communities need to be organized to involve slum improvement programs for ensuring
their sustainability.
• It is important to have individual HH’s avail independent toilet facilities and HSC’s so as to be
part of the standard city population.
4.3 Storm Water Drainage

Drainage is an important element of physical infrastructure and constitutes removal and disposal of
surplus rainwater from the land. Since urban expansion is inevitable, increase run-off would require
remodelling of the existing drains as well as provision of new/ supplementary drains. Provision of
appropriate drainage in marginal settlements consisting of slum clusters, informal/ unauthorized
colonies etc. requires due attention.
4.3.1 Existing Drainage System

The present system of drainage in the town consists of natural as well as manmade drains. In fact,
the man-made drains are linked to the natural drains for disposal. The storm water drains carry
mainly the waste water comprising the sullage and sewerage from the houses. This has created
enormous environmental problems.
The length of the roads including State Highways in the town is 32.17 km. Drainage system comprise
of pucca open drains of length 0.5 km., covering only 1.55 percent of the entire road network. The
slope of the town is towards east. Storm water from west flows into the open low lying areas of east.
Almost 70 percent of the town area remain flooded during the rainy season, mainly wards 1, 5, 7, 8,
10, 12, 14, 15, 17, and 18.
The rainfall is generally irregular and intermittent; the average annual rainfall is 450 mm. During
monsoons the above mentioned low-lying areas gets flooded with water and become breeding
ground for various water borne diseases. Open drains also carry sewage and sullage are a cause of
health and environmental concern.
Table 4.11: Basic Data – Storm Water Drainage

Drain type Length (km)
Open Drains (Pucca) 0.5
Uncovered road length 31.67
Storm water drainage system in the town is in poor shape. The topography of the town is undulating,
draining in varying directions. Man made drains empty themselves into natural drains which are not
lined. This situation not only degrades the environment by generating foul odour due to stagnation at
number of points, but also pollutes the land and ground water through seepage. It is therefore of
prime importance, that drains be made and integrated to each other following basic principles of
topography management.
As in case of most of the ULB’s there is no separate system for sewerage and drainage. Monsoon
period in the region is spread over two-three months during which rainfall is intermittent. During heavy
rains, the waste water from toilets and kitchens get highly diluted, rendering the flow almost harmless
in pollution level. During the rest of the months, which are normally dry, only sewage and sullage flow
through the drains.
4.3.2 Service Adequacy

At present only 1.55 percent of the total road length is covered under storm water drain, which is
highly inadequate. Almost 70 percent of the town area remains flooded during the rainy season.
Rainfall in this region is average, but even then there are frequent flash flood situation in some areas.
Ward No. 1, 5, 7, 8, 10, 12, 14, 15, 17, and 18 are prone to Water Logging/ Floods as compared to
rest of the area. A system of quick disposal of rain water in natural systems/ or water harvesting sump
is required for the town.
4.3.3 Key Issues

(a) Disposal of Domestic Sewage into Storm Water Drains
In the absence of a sewerage system and inadequate sanitation facilities domestic sewage is let into
the storm water drain. This has resulted in pollution at the final disposal points. In addition, the storm
water drains and natural drainage channels are susceptible to uncontrolled garbage dumping resulting
in blockage and stagnation.
(b) Silting of Storm Water Drains

Silting added with uncontrolled solid waste dumping and encroachments on the banks are interrupting
the storm water flow thereby spilling into the neighbouring residential and commercial areas.
(c ) Stagnation and Health Risks in Newly Developed Areas

Several areas like extension area of the entire ward in the town are yet to be provided with good
infrastructure like roads, street lights, drains etc. These are some of the newly developed areas which
are low lying. Regular stagnation of drainage waters in these areas have become the root cause for
health risks.
(d) Demand-Supply Gap and Future Requirement

At present, there is 0.5 km of open kutcha drain. There are no primary drains, therefore for covering
total town area the requirement for storm water drainage for the town will be about 64.34 km on both
sides of the municipal road (including existing drains) i.e. 64 km of new drains (both sides) would be
required to meet the present demand.
4.3.4 Suggestions
• Storm water that drains into water bodies is a preferred option for recharging ground water. The
town has a few water bodies that help drain the area.
• Alternative ways of drainage can be tested on pilot basis as water harvesting structures.
• Well designed drains ensure environmental health and hence it should be designed following
basic principles of topography management.
• Provide proper wire mesh at entry and open outlets.
Table 4.12: Strategies and Time Frame – Storm Water Drainage

S. No. Strategy 2009 2010 2011 2012 2013
1 Constructions/ Redevelopment of Drains
2 Rejuvenation and Rehabilitation works for Water
Bodies
3 Operation and Maintenance Schedule
4 Pilot Study of Alternate Drainage Models
4.4 Solid Waste Management
Solid Waste Management, a mandatory function of Urban Local Bodies (ULBs) is poorly performed in
most ULBs, resulting in problems of health, sanitation and environmental degradation in most of the
towns. Unless concentrated efforts are made to improve the flow of resources to solid waste
management and build up systems that incorporate the basic requirements of a proper waste
management practice, the problem will keep aggravating. At present, all the waste collected is
dumped at an existing disposal site at Tattarapillai located within the town.
Efforts to improve the solid waste management in the town are taken by the Health Department. The
waste generated is collected and dumped at the road side compost yard. The total quantity of solid
waste generated is 12MT and collected is 9MT per day having collection efficiency of 75 percent as
per estimates of the municipality. The municipality handles 100 percent of the waste collection and is
planning to give fresh tenders for primary and secondary collection. ULB is also planning to issue
fresh tenders for primary and secondary collection.
4.4.1 Waste Generation

The total quantity of waste generated in Kayalpattinam town is 12 MT per day. This works out to 290
gm per capita per day, which is higher than the standard considered in CPHEEO Manual for small
town of 250gm per capita per day. This is attributed to the presence of commercial activities,
particularly hotels, and restaurants generating large quantity of waste as also the waste generated by
visitors.
Table 4.13: Quantity of Waste Generated

Type Quantity (MT) Percentage
Domestic 8 67
Commercial and Markets 3.6 30
Hospital Waste 0.4 3
Source: Municipal Records, Kayalpattinam
Domestic Waste
Domestic waste is generated at the household level and varies amongst wards and on an average
ranges between 200 to 250gm. Of the total waste, domestic waste is about 8 MT, constituting 67 per
cent of the total waste generated. It comprises of organic material that could be easily disposed.
Commercial Waste and Markets

The commercial waste includes the waste from hotels and eating establishments, from shops, trading
units, small time street traders’ etc. Kayalpattinam has a daily market along the Parimar Street. The
daily waste segregated is about 3.6 MT, which is 30 percent of the total waste generated in the town.
The waste from shops mainly comprises of paper, plastics and other in-organics, which are finding
their way to the disposal yard along with the domestic waste and organic waste is generated in weekly
markets.
Bio-medical waste
No scientific method of disposal of Bio-Medical waste is followed by the municipality and at present
this waste is getting mixed with the other waste collected by the Municipality estimated at 0.4MT of
generation per day.
4.4.2 Waste Collection
The system of primary collection followed is cleaning, sweeping and collection of MSW stored in
dustbins/ closed container by handcarts. The town is not divided into sanitary divisions and looked
after by one sanitary inspector and two sanitary supervisors.
Table 4.14: Waste Collection

Particulars Indicators
Generated 12MT
Collection 9MT
Collection Efficiency 75 %
Door-to-Door Collection & Source Segregation

Door-to-Door collection is not followed in Kayalpattinam. However, there are no dustbins placed
across the town. There are 16 collection points at various locations from where waste is collected once
in a day. Street sweeping and drain cleaning is conducted every day and organic waste generated by
the slaughter house, kalyana mandapam’s etc is also collected on a day-to-day basis.
Table 4.15: Waste Collection

Head Numbers
Hand carts (0.3 MT) 7
Collection Points (1 MT) 10
Frequency of Collection Daily Once
The inadequacy of the system in this area is

being felt clearly, with overloaded transfer
vehicles and left over waste.
Fig. 4.2: Primary Collection

Street Sweeping: Street sweeping is time consuming and labour intensive activity in SWM. Drain de-
silting is also essential due to the open drain system in the town. Kayalpattinam carry out street
sweeping and drain de-silting in all the wards. Hand brooms and brooms with metal blade ends are
used for street sweeping while shovel and push are used for drain de-silting activities.
4.4.3 Waste Transportation and Disposal

Table 4.16: Existing Fleet of Vehicles
Type of Vehicle No. Age (years) Total Trips/ day Capacity of each Vehicle
(mt)
Secondary Collection and Transportation and Disposal
Tractor with trailer 1 4 3 1.5
Mini lorry 1 4 3 3.5
Mazda 1 2 3
Source: Municipal Records, Kayalpattinam, 2007
The municipality has 1 tractors of capacity 1.5 tons, one mini truck with a capacity of 3.5 tons and one
Mazda, all used for secondary collection as well as transportation to disposal site. Each vehicle makes
three to four trips per day from the collection points to the disposal sites. The fleet of vehicles available
for the purpose includes tippers, tractors and mini trucks. As per the estimates of the municipality the
75 percent of the waste being generated in the municipality is being collected and transferred to the
disposal site.
The frequency of transportation of waste to disposal sites from various collection points is once a day
and is conducted during forenoon. The total
capacity of the fleet is 5 tons, which is 75
percent of the waste generation. Road length
per conservancy staff at 328 m is near the
prescribed norms for a town of its size. However
at present, on an average each vehicle makes
more than 3 trips per day to collect and transfer
75 percent of the waste i.e., 9 tons is collected
every day and the rest 25 percent of the waste
is either left uncollected.
Fig. 4.3: Secondary Collection
No scientific method of disposal is followed in the municipality. Heaps of waste is dumped in open on
disposal sites at Tattarapillai, located within the municipal limit of the town. The area of the land at
Tattarapillai is 2cent. The disposal site is serving since 30 years and is saturated. Municipality has
identified 5 acres of land in Kayakudi for waste disposal, located within the municipal limit, for which
No-Objection Certificate from the Pollution Control Board and Directorate of Town and Country
Planning for acquisition of this land is awaited.
4.4.4 Staff Pattern

At present, there are 27 sanitary workers in the Municipality and 6 posts are vacant. The staffing
pattern is given in table below: in order to improve the efficiency in public health sector, more workers
need to be recruited or private sector/SHGs/RWA need to be involved for SWM. The staffing pattern is
given in table below:
Table 4.17: Staffing Pattern
Designation No of Workers needed No of Present Workers

Sanitary inspector 1 1
Sanitary supervisor 2 2
Sanitary Workers 33 27
Truck Drivers 1 1
Source: Municipal Records, Kayalpattinam, 2007
4.4.5 Performance Indicator
Table 4.18: Performance Indicator, SWM

Indicator Current Benchmark
Situation
Per-Capita Generation 290g. < 250 g.
Collection Performance (% Collected to Generated) 75 % 100.0 %
Area Coverage per Collection Point 0.78 Sq.km 0.16 Sq.km
4.4.6 Demand Supply Gap-Future Requirement
The total Solid Waste Generation in 2007, according to Municipality, for a per capita generation of
approximately 290 grams/day is estimated at 12 MT. However as per Solid Waste Handling Rules,
2000, per capita generation of solid waste in small town should be 250 grams/ day.
The Present Disposal system is open waste dumping, which is creating potential health and
environment hazard considering the quantity of waste generation, location of disposal site and its
environs, hence further option for Scientific Waste Disposal and Composting can be explored on
priority basis. Assuming that the waste generated per capita per day is 290g., gap analysis is given in
table below:
Table 4.19: Gap Analysis Solid Waste Management

Year Population Waste Sweepers Door to Hand Tricycle Black + Tractors
generated required door carts green required
per capita collection- containers
labour (4.5MT)
Current Status 12 27 - - 2
2011 48114 16.0 64 55 64 58 31 2
2015 54294 19 64 66 64 70 33 2
2021 71353 23.8 64 82 64 86 33 3
2031 102382 34.1 64 118 64 124 37 3
2036 141201 40.3 64 139 64 146 39 4
2041 48114 47.1 64 162 64 171 41 4
4.4.7 Issues
Issues emerged from assessment of town’s SWM systems are narrated below:
(a) No Dustbins
Dustbins are not provided by the ULB, waste is dumped in open, on the sides of the road and
transportation is undertaken through open vehicles. This is dangerous to the environment as well as a
hazard to the community.
(b) Absence of Effective Primary Collection Mechanism

Door to door collection system is not practised in the town. Segregation of waste is almost absent
moreover collection of waste is not done on a daily basis from all places of the town. Specialized
Vehicles for transporting night soil, and sewage suction Lorries need to be used, even on hire for
keeping sewerage lines from blocking.
(c) Transportation of Wastes in Open Vehicles

The wastes are being transported through open vehicles and there is no net coverage in the vehicle
resulting spillage of the waste, leading to environmental and health concerns.
(d) Lack of Scientific Waste Disposal

No system of scientific disposal of waste is followed at present; thereby dumping in open is practiced.
The waste is disposed of improperly posing a problem to environment and health. Composting of
waste has not yet been attempted but it could be a possibility in a near future. The Medical
Practitioners Association has agreed to bear a part of the cost of procuring the incinerator; delay in
finding a site for the location of the incinerator is compounding the problem.
(e)Occupation Health Hazards

The waste collection, loading and unloading operations are done manually. The sanitary workers
have not provided with any protective equipment posing health hazards.
(g) Inappropriate Siting and Lack of Effective Technology for Scientific Disposal of Waste at the
Composting Yard.
Disposal site is located within the town at Tattarapillai. Infrastructure at the disposal site is absent and
crude dumping is resorted due to lack of an effective scientific method of disposal.
(f) Other Issues
• Biomedical and construction waste requires serious consideration for disposal.
• Waste not being scientifically treated and managed. Absence of covering the waste daily with
inert material.
• Waste not compacted on disposal site.
• Source segregation not ensured.
• No separate community bins for bio and non biodegradable waste.
• Absence of community composting at ward level/ city level.
• Absence of rag pickers organized for waste resource recovery.
• Absence of information systems/ penalties/ periods campaign for ensuring clean town.
4.4.8 Suggestions
• Priority has to be accorded to segregation and storage of waste at source irrespective of area
of generation so as to adopt environmentally acceptable waste management measures.
• The adoption of four R’s - Reuse, Recover, Recycle and Reduce can help ease pressure on
compost sites and affords resource recovery.
• Varieties of waste have to be differently dealt with; construction waste should be stored in
proper skips at the premise and directly emptied by the generator at notified sites; slaughter
houses need to keep separate container for animal and other wastes; Commercial – Hotel –
Market waste should be privately collected and disposed.
• A number of campaigns / community awareness should be organized for introducing source
segregation.
• Manual waste handling operation should be minimized; non – biodegradable waste from
premises should have organized collection.
• Primary collection should cover all areas of the town with even innovative but safe transporting
arrangements.
• Street sweeping should be gradually fully privatized to include market and other areas /desilting
of drains /collection of green waste /hospital and hazardous waste / gardens and other
recreational areas /Religious and other public places etc.
• Recycling efforts by self employment SHGs should be encouraged
• KM should co-ordinate with State Government for clustering in regional engineered land fill site
for waste disposal involving other neighbouring ULBs. This ensures scale and viability to the
private participation mode.
4.5 Traffic, Transportation & Roads
Urban economy is seen to improve with urban transport infrastructure. Roads and circulation is
an important city land use allowing efficient functioning of the city’s activities. Conversely, it can drag
down and prove detrimental to its GDP. The objective of studying town level transportation is to
understand and analyze the present travel scenario of the town and to focus on existing potentials
and scope of development.
4.5.1 Existing Situation and Adequacy
Kayalpattinam is known for its chemical industries, salt pan, palm products and fishing. Moreover, it is
a tourist destination with nearly 1500 tourists visiting per day.
At certain places pedestrian traffic dominates especially in commercial and tourist areas of the town.
The congestion due to the mixing of pedestrian and vehicular traffic is high near the Temple. There are
no mass transportation facilities within the town and surrounding hamlets.
Fig. 4.4: A Glimpse of the Roads in Kayalpattinam
The municipality has a total road length of 32 Km. As regards the surface condition, around 47 percent
of the road length is tarred/ bituminous black topped, 8 percent stone paved and 7 percent concrete
and about 1 percent are earthen roads.
A preliminary survey of the road condition in the town reveals all the roads especially the earthen
roads are in bad condition. The circulation network forms the nervous system of the town to move, to
interact, and interlink the houses, the work places, and other activity centres. A good road network is
a necessity not only for growth and development of habitats but also to sustain it in a progressive
mode.
Table 4.20: Existing Road Network

Roads Length (km) Percentage
Surfaced Roads
Black topped 15.20 47.23
Concrete 7.26 22.56
WBM 8.24 25.61
Un-surfaced Roads
Gravel/ Earthen 1.48 4.60
Total length 32.17 100
(a) Road Network

No fixed street pattern is observed in Kayalpattinam. State Highway passes through middle of the
town and all the important roads in the town are connected to the highway. The road network
comprises of black topped, cements concrete and, stone paved roads.

The main roads of the town are:
• Tiruchendur - Kayalpattinam Road
• Arumuganeri - Kayalpattinam Road
• By-pass (Thoothukudi – Tiruchendur) Road

Indicator Current situation Benchmark
Road Density 2.57 Km/ Sq.km 10.0 – 15.0 Km/ Sq.km
Per Capita Road Length 0.91 m 1.75 m
% CC Roads to Total Road Length 23% 15.0 %
% Municipal Surfaced Roads 95 % 100.0 %
(b) Travel Pattern

The travel pattern in the town is guided by the road network and land use. There is concentration of
commercial activities in the core area and on both the sides of the State Highway. There is also a lot of
thorough traffic from Tirunelveli to Tiruchendur & Thoothukudi to Tiruchendur which passes through
the centre of the town in the absence of ring roads/ bye-pass roads.
(c) Parking Facilities
In the absence of any assigned parking facilities in the municipal area, abrupt and indiscriminate
roadside parking is noticed. This has led to reduction in the effective carriageway of the roads leading
to congested travel and accidents.
(d) Public Transport

Public transport system in the town is operated by private sectors plying mini-buses between various
localities in and around the town. There are about 10 to 15 such mini buses plying within the municipal
limits and also towards Tiruchendur town.
Apart from these buses, there are a number of auto-rickshaws operating in the town. These autos are
widely used mode of Public Transport. Pedestrian mode of transport is also significant in the town
especially in commercial and temple area.
4.5.2 Issues
(a) Congestion in Core Areas
The central areas of the town are very narrow and are surrounded by heavily built areas. These roads
also carry large volumes of traffic that cater to the commercial trading and tourism. These factors
make these lanes highly susceptible to air pollution and delayed travel times.
(b) Improper Connectivity of Peripheral Areas

Recent developments were towards the peripheral areas of the town. The growth in these areas has
been considerable; the connectivity of these roads with the main corridors is inadequate.
(c) Operation & Maintenance of Roads

Monsoons and wind erosion make the roads highly susceptible to damages. The condition of the
roads worsens with every monsoon resulting in periodic re-laying involving high operation and
maintenance cost.
(d) Encroachments
The margins of roads are encroached upon at several sections by small time street vendors, illegal
parking and other informal activities. With no margins left on the roads, the effective carriageway is
reduced drastically leading to congestion and accidents.
(f) Other Issues

The emerging issues are summarised as follows:
• Poor Visibility at Junctions
• Tirunelveli-Kayalpattinam State Highway passes through the centre of the town and is highly
congested at several points due to the commercial activities extending onto the margins of the
roads. This has made the road highly susceptible to several accidents. Several other important
roads in the town also have sharp turns and encroachments creating poor visibility for riders on
these roads.
• Absence of organized traffic in the town.
• The town doesn’t have any organised parking facilities and this has added to the congestion on the
roads.
Lack of pedestrian sidewalks also adds to the traffic problem.
4.5.3 Gap Analysis
The gap analysis and performance indicators clearly show that the transportation facilities in
Kayalpattinam are inadequate and requires up gradation to reach to the prescribed standards. The
deficient transport facility may result in negative growth of tourists and economic loss to the town.
Table 4.22: Gap for Traffic and Transportation
Indicator Existing Conditions Standards
Road Density 2.57 Km/ Sq.km 10-15 Km./Sq.Km.
Road Length per Capita 0.91 m 1.75m
% Town Area under Roads/ Circulation - 25%
Average Road Width 7m 6.50
Distribution of Road by Type (%)
I Concrete 23 15
Ii Black Top 47 85
Iii WBM 25 0
Iv Cut Stone/ Earthen/Others 5 0
Public Transport System (bus shelters and other Mini buses-Private Required
facilities)
Traffic Management/ Junction Improvements - Required
Parking - Required
Source: IPE Analysis & Municipal Records, Kayalpattinam
4.5.4 Suggestions
• Traffic Surveys will give an assessment of all the traffic related problems.
• Signals, crossings, sidewalks, road markings, intersection treatment, bus bays & shelter,
landscaping & street furniture are areas needing attention.
• Campaigns for road safety, driving behaviour, road education are important for citizen safety.
• Essential road furniture includes
- Kilometers stones / signboards
- Road painting with reflectorised thermoplastic paint.
- Regulatory / cautionary sign boards
- Street lights of standard intensity and at standard distances.
- High mast lights at all major junctions.
- Other signs as required
- Policy on advertisements / hoardings.
4.5.6 Strategies and Time frame
Table 4.23: Strategies and Time Frame

S. No. Strategy 2009 2010 2011 2012 2013
1 Up – Gradation of Roads
2 Formation of New Roads
3 Pedestrianisation & Signages
4 Parking Management

5 Junction Improvement
6 Widening & Strengthening
4.6 Street Lighting
4.6.1 Existing Situation
Provision and maintenance of street lights is a mandatory function of any ULB. This includes their
installations, replacement/ repair, operation and maintenance. There are 1114 streetlights poles at
approximately 29m intervals. The table below presents details about the municipal streetlights in the
town, with fluorescent lamps (tube lights) constituting 76 percent of the total light fixtures, followed by
sodium vapour lamps about 24 percent.
Table 4.24: Details of Luminaries

Luminary Type Quantity Percent
High Mast Lamps 3 0.27
25 WSV Lamp 269 24.15
Tube Lights 842 75.58
Total 1114 100.00
Source: Kayalpattinam Records, 2007
4.6.2 Service Adequacy

Development of effective road network in the town, which will form the base for the provision of other
services. The average spacing of street light in the town is 29 m which is as per the required
standards and 90 percent of the town is well lit. With respect to the composition of lights in the town,
there are a larger number of tube lights and a very low proportion of high mast lights.

Indicator Current Situation Benchmark
Spacing between Lamp Posts 28.88 m < 30.0 mt.
% Tube Lights 75.58% 70.0 – 80.0 %
% High Power Lamps 24.15% 20.0 – 30.0 %
Key issues are related to power fluctuation and short circuit problems leading to low carrying capacity
of the cables. Improper street lighting in the newly formed extension areas and major junctions is
another major problem.
4.6.4 Suggestions
• Standards for illumination have to be adhered in all the areas, although the town is meeting the
standards in certain areas.
• Timers to street lights ensure less wasteful culture.
• Energy audits and low energy adoption measures need to be undertaken for reducing energy
expenditure by municipality.
• Solar lamps (sponsored by business houses/ communities/ other active participants) should be
adopted. Solar panels and Photovoltaic Cells are being marketed with government subsidy.
• Residential area safety with adequate illumination should be ensured.
• Privatisation in the form of maintenance contract may be explored by the ULB.

4.7 Social Infrastructure
4.7.1 Education
There are four government and five private primary schools having about 1200 students. The
municipality has five private higher schools which accommodates 395 students. The municipality has
fourteen Anganwadis. The town does not have any provision for higher education (Engineering,
Polytechnic).
Table 4.26: Educational Institutions

S. No. Institution No. Students
1 Govt. Primary School 4 450
2 Private Primary School 5 750
3 High School 1 650
4 Private Higher Secondary School 5 395
5 Anganwadi 14
4.7.2 Health
The town consists of a government hospital with 74 beds. In addition, there are 5 private hospitals/
clinics managed by private practitioners.
Table 4.27: Health Facilities

Type No.
Govt. Hospital 1
Private hospitals 5
Private Doctors 10
Source: Municipality, Kayalpattinam, 2007
The town has highly inadequate health facilities provided by government. For a population of 33, 264
persons there is only one government hospital whereas norm is 1 health centre for every 5000
population. However, the town has good number of private clinics run by private practitioners.
(a) Disease Pattern
The disease pattern in the town could not be put under comprehensive analytical scanner, as the data
from the private institutions were not available. However, the data available from the government
hospital infers that there is frequent occurrence of malaria, typhoid and water borne diseases.
4.7.3 Issues
The social infrastructure components have the potential to contribute to the development of effective
population absorbing capacity of the town. Apart from the conventional components of health and
education infrastructure, recreation facilities, open spaces are some of the other important aspects.
The principal of equity would require the needs of the poor should not be overlooked and flexible
norms should be adopted to generate resources to develop the specific social infrastructure.
4.8 Urban Environmental Concerns
Environment, in its broadest sense, is a sum of the social, physical or chemical factors surrounding
man. Environment plays a crucial role in establishing the base for future development.
Kayalpattinam enjoys a relatively clean environment, which can be attributed to a number of factors
like presence of water bodies and open areas etc. However, there exist some micro areas where the
environment quality is deteriorating due to excessive extraction of ground water, presence of sand,
slums, low-lying areas, areas with poor garbage disposal etc.
4.8.1 Air Quality
Significant vehicular movement, petty commercial activities and pedestrian movements coupled with
unpaved margins of the roads result in high levels of dust suspension and in turn high SPM levels.
Presently no monitoring arrangement exists for Air Quality assessment, monitoring stations are
required to create data base so that appropriate remedial measures can be suggested.
4.8.2 Water Quality
Water sourced for drinking is extracted from sub-surface and excessive extraction has caused salinity
and hardness. The storm water drainage in the town is through open channels which are used for the
dumping of sewage and sullage which finally end up in the water bodies. This leads to the
contamination of the water sources and land.
Moreover, the rapid urbanisation during the last decades along the water bodies has aggravated the
problem of open defecation. In fact, this is a common picture in most of the polluted inland rivers and
water bodies of India leading to several water borne diseases.
Tamil Nadu Pollution Control Board (NPCB) frames the rules for environment protection and sets
required standards for control. However, it is necessary that the Municipality play an important role in
protection and conservation of its environment. For the purpose the citizens of the town need to be
educated through environmental education campaigns to be taken up by the Municipality.
4.8.3 Parks and Play Grounds
The park is located along the beach covering an area of 1 ha. The park has 3 fountains and stylishly
trimmed lawns which adds to the beauty of the park and is a frequented place by people of all ages.
Issues emerged from assessment of the environmental concerns include the following:
• Frequent blockage of natural drainage;
• Non-utilization of tanks as rain water harvesting structures;
• Dumping of solid waste in open drains;
• Lack of proper landfill site;
• Clean beaches should be maintained; and
• Ecological fragile zone and should be maintained in that manner.

CHAPTER – 5
HOUSING, SLUMS AND THE URBAN POOR

5.1 Introduction
Housing is a crucial requirement in a city no matter what the size. It is also the largest Land
use constituting nearly half of all Land uses in the city. It can be available in many forms as:
• Government and Municipal Housing

• Rental Housing
• Co. operative housing in lots or apartments.
• Privately developed colonies
• Unauthorized occupation of government or other private lands
• Squatting and temporary hutments
• Core area dilapidated housing etc.
Several variations of these types exist in almost all small, medium or large towns, the commonest
being self occupied self owned, or rental housing, with the rest being driven to marginal options as
slums, squatting or pavement dwelling. Towns in Tamil Nadu, as the ones in our reference study have
very little speculative housing because of a poorly organized real estate market.
Most housing plans have no provision for housing for the poor, thus depriving them of adequate
housing. State intervention is necessary in this matter and for enjoying a dignity of life; the vulnerable
population has to be covered for housing. Currently, central programs are specially committed to
resolve this dilemma and special funds devised to execute the schemes for housing the poor.
5.2 Housing Categories and Conditions
National Sample Survey Organization (NSSO) of India had categorized houses into three types i.e.
Pucca, Semi-Pucca and Kutcha. Census data on housing conditions in urban area especially for
district and taluk is available in Census of India 2001, only through typologies of houses with various
types of roof, walls and floors.
(a) Houses with Various Types of Roofs

Housing roof made up of Grass, Thatch, Bamboo, Wood, Mud, Plastic and Polythene are in Kutcha
category. Roofs made of Tiles, Slate, GI, Metal and Asbestos sheets are in Semi-Pucca category and
Brick, Stone, Concrete are in Pucca category.
(b) Houses with Various Types of Walls

Housing walls made up of Grass, Thatch, Bamboo, Plastic and Polythene are in Kutcha category.
Walls made of Timber, Iron, GI, Metal and Asbestos sheets are in Semi-Pucca category and Brunt
Brick, Stone, Concrete are in Pucca category.
(c) Houses with Various Types of Floor

Floors made up of Mud and Wood are in Kutcha category. Floors made of Brick and stone are in
Semi-Pucca category and Cement, Mosaic is in Pucca category.
Core areas have G+1 or G+2 developments and mixed landuses and pucca construction. Housing
condition is briefly described in table 5.1:-
Table 5.1 Housing Condition (for Roof, Floor, Walls)
Building Type Houses (Nos.) %
Kutcha Roofs 4350 37.83
Walls 4350 37.83
Floors 4350 37.83
Semi Pucca Roofs 3306 28.75

Walls 3306 28.75

Floors 3306 28.75
Pucca Roofs 3843 33.42
Walls 3843 33.42
Floors 3843 33.42
Total Houses 11499 100.00
Affordability for a pucca house in Kayalpattinam is extremely low with nearly 37 pecent of the houses
being of temporary nature.
5.3 Slums and BPL

Table 5.2: Ward Wise Slum Population and BPL Population
Ward Slum Name Total Slum Area Slum BPL Pop %BPL to
No. Ward Population Under HHs (persons) Ward Slum
Area (Persons) Slum (No.) Pop.
(Ha) (ha)
1 Arunachalapura 90 2060 16.80 842 1,200 58.25
m
1 Mangalavadi 90 597 6.80 224 - -
12 Alagapuri 80 1196 6.80 242 569 39.32
12 Poonthottam 80 457 24.80 234 100 21.88
12 Rathnapuri 80 1180 25.20 132 188 38.37
12 Thaikapuram 80 490 12.80 202 102 20.16
14 Kadayakudi 75 923 6.80 439 304 25.42
14 Lakshmipuram 75 848 19.60 504 937 79.41
14 Odakkarai 75 506 18.80 302 659 77.71
Total 245 8,257 138.40 3,121 4,059 44.57
Source: Kayalpattinam Municipality and IPE Analysis
• Almost 57 percent of the ward area is under slums in ward 12, 35 percent in ward 14 and 22
percent in ward 1.
5.4 Infrastructure Provision in Slums

Table 5.3: Infrastructure Provision in Slums
S. No. Slum Pocket PSP (Nos) Length of BT No. of households No. of Tube
Roads (km) with septic tanks lights
(Nos.) (nos.)
1 Alagapuri 3.00 0.20 87
2 Arunachalapuram 8.00 2.10 692
3 Kadayakudi 3.00 - 132 7
4 Lakshmipuram 4.00 0.83 228
5 Mangalavadi 2.00 - 17
6 Odakkarai 3.00 - 67
7 Poonthottam 3.00 - 201
8 Rathnapuri 3.00 1.70 392 18
9 Thaikapuram 1.00 - 102
Total 30 4.83 1918 25
(a) Water Supply

Most of the slums have their water supply through public stand points.
(b) Sanitation
Though many households in the slums have the provision of septic tanks, the overall sanitation
facilities in the slums are poor with lack of drainage, uncleaned filth and garbage. People also
follow the practice of open defecation. Such conditions lead to environmental health risks such
as water borne diseases like hepatitis B, typhoid, gastro enteritis as well as malaria.
(c) Roads and street lights

Only 4.3 kms of road length is available indicating an inadequacy. Similarly a total of 25 street
lights indicated that there is insufficiency with one light pole for every 193m of road length.
5.5 Indicators, Basic Services Availability & Gaps
• Persons per public stand point : 275 persons against a benchmark of 50 persons
• Distance of Street Lights : 193m against BM of 30m
• % Slum Households to Total Households : 43% against the benchmark < 6.5 %
• Slum population constituted 25 percent of all population.
• Together BPL and Slum population are nearly 40 percent of total population.
• Most slums don’t have basic services. proposal, the access of basic services
• Rate of growth of slum population is likely to match the growth rate of the city’s population
5.6 Housing Demand and Housing Shortage
Table 5.4: Growth of Houses and Households

Year Population Household (Nos) Average Family Size
(Persons)
1981 23,544 4,938 4.8
1991 24,428 5,662 4.3
2001 32,664 7,320 4.5
Table 5.5: Housing Gap Note: Assumptions

Year Gap • Population as forecasted in this report
2001 735 has been adopted
2011 797 • The present HH size of 4.5 has been
2021 6736 projected for determining gap.
2031 14665
(2001 HHs 11499; Population 32664)
2041 24586
An assessment of housing gap is made in table 5.5. Slum housing estimates of demand are given in
table 5.6.
Note: Assumptions
Table 5.6: Slum Housing Demand • A total 25% of population consisting of
slum HHs and BPL HHs has been
Year Housing Demand
assumed up to year 2021
2001 1633 • Beyond 2021, it is expected that slum
2011 2767 population will not exceed 10% of the
2021 3282 total.
2031 2355
2041 3248

CHAPTER - 6
HERITAGE
6.1 Introduction
Heritage, an aspect neglected so far in urban plans, is now an integral part of city development. The
country with its ancient history is dotted with architectural, cultural and archeologically remains that
impart pride and are worthy of conservation. Tamil Nadu, with its 2000 years of continuous cultural
history, has a vast repertoire of magnificent temples, hills, forests and wildlife, beaches, a coastline
and typical settlements abutting it. That these manmade and natural resources need to be conserved
is without a doubt. Thankfully, legislation that helps heritage conservation to be an integral part of
development plans, is now in place. The JNNURM has a toolkit to ensure that this component has
credence in its framework, has made it doubly sure that its neglect is now passé
6.2 Heritage Components
These include sites and buildings of archaeological, historical, architectural, cultural, religious and
ecological value. The incorporated sites and buildings shall be those listed by the Archaeological
Survey of India; State Archaeological departments and their acts; Ministry of Forest and Environment/
supporting state departments under this acts; listing done under the State Town Planning Acts, and
lists approved, supported and mandated by Trusts city Heritage groups/ registered societies for
Heritage/ other concerned individuals. Since listing is a prerequisite to conservation and perceived as
an obstructive mechanism for realizing a property’s real estate worth, it has a hesitant acceptance.
Heritage properties are also mired in ownership issues/ multiple tenancy, and are not easily subject to
any Heritage based projects. Several Heritage houses, monuments and sites have been lost as a
result of weak intervention in policy, objectives and serious action.
It is important to map the entire (a) immovable natural heritage sites and (b) immovable manmade
heritage sites.
Thoothukudi district shares part of the heritage wealth of Tirunelveli having once been part of it, and
having secured prominence very early in history during the Pandyan period. Temple architecture in
Tamil Nadu is iconic to the region having evolved over several dynasties, as, the Pallavas, Cholas,
Pandyas, Vijayanagara and the Nayakas which ruled for 1000 years from 600 A.D. Chronologically
Tamil Nadu has representative works during the Pallavas, (with the Shore temple at Mamallapuram);
the Kancheepuram Temples by the Cholas as does the Brihadeshwara Temple at Thanjavoor;
similarly Pandyas brought in monumental gateways or Gopurams as an element; the Nayakas later
built Gopurams which were even more monumental such as those in Rameswaram and the Meenaksi
Temple at Madurai. Several structural temples were enriched with sculptural forms in high relief with
an exuberance of detail which marked beauty and matured into an significant art.
The temple at Tiruchendur belongs to the family of temples as discussed and is a prominent pilgrim
site.
6.3 Heritage Sites near Kayalpattinam
Kayalpattinam itself has local deities is lesser known temples. However being part of ancient history
of the pre-Christian era, a large reservoir of heritage, both tangible and intangible, exists within the
Tiruchendur taluk as well as in other taluks of Thoothukudi district.
Tourism has emerged as an instrument for employment generation, poverty alleviation and
sustainable human development. Tourism promotes international understanding and gives support to
local handicrafts and cultural activities. It is an important segment of the country's economy, especially
in terms of its contribution towards foreign exchange earnings, generation of additional income and
creation of employment opportunities. Tourism is the third largest foreign exchange earner for India.

Some note worthy heritage sites in the reference taluk are listed here followed by those which
constitute heritage on the district:
1. Swami Kallapiran – Srivaikundam,

2. Swami Vijayasanar – Natham,
3. Swami Kasinavendan – Thiruppulingudi,
4. Swami Devarpiran - Irattai Thiruppathi,
5. Swami Aravindalochanar – Thiruppulingudi,
6. Swami Maharanedungkuzhaikadar – Then Thirupperai
7. Swami Aathipiran,
8. Swami Nammalwar and
9. Swami Vaithimanithi, Swami Madhurakavi Alwar
6.3.1 Tiruchendur
Tiruchendur is situated on the coast of Mannar. It is 40 Kms from Thoothukudi. Nearest airport is in
Madurai or Thiruvananthapuram. It can also be reached by Bus and train from other important places.
Tiruchendur is very popular for the seashore temple of Lord Subramanya. The temple tower and the
sculptures of the temple are worth seeing. It is also ideal for sea bathing.
Fig.6.1: Tiruchendur Murugan Temple

Thiruchendur Temple is a very well publicised
pilgrim site which has references in ancient
literary Sangam works by several authors
(Puranaanooru, Akannanooru, Illango in his
Silappadi Kaaram). Mythology states that Lord
Murugam slaughtered the demon Surapadma
(an event which is annually reenacted here)
and built a shrine to worship Shiv his father.
Six battle camps and the vanquishing of the
th
enemy on the 6 day is celebrated as Skanda
Shasti.
The shrine is old, but structures are dated from

th th
the 19 century. 9 century inscriptions from
Pandy rulers are exhibited in the temple.
Temple has a 9 tiered gopuram (137’ high). In front of the temple is a Mandapam with several
carved pillars. The main entrance faces south though sanctum is east faced. There are two
prakarms; inner prakarm has images of 63 nayanmars with shrines to several gods, as well as to the
two consorts of Muruga. Similarly the outer prakarm has several shrines. Specific worship protocols
are observed during the day, week, auspicious months/seasons/occasions within the temple,
Murugan is portrayed as a child god and as one with 6 heads & 12 arms. In a rock cave behind the
sanctum are placed 5 Shiva lingams.
6.3.2 Nazhi Kinaru
Near the Thiruchendur temple, on the shore, is a unique occurrence. A small well within a larger well,
from where steps to go down to the contained well, has sweet water whilst the outer well has
sulphurous and brackish water. There are mythological connections with this well. Sandalwood paste
is used and offered to devotees for smearing.
6.3.3 Melaputhukudi
There is an Ayyanar Temple located within a bamboo grove which has a natural spring located just
10 km from Tiruchendur.
6.3.4 Thoothukudi

• Ancient Temple established during Pandya, known as, Sri Sankara Rameswarar Temple
devoted to lord Siva Sri Vaikundaphy Temple
• Ancient church built by Portuguese in 1714, called Paninaya Matha
6.3.5 Kazhugumalai
• Jain Cave Temple with bas relief are excellent pieces of

art, Rocks have carved figures of the Tirthankars,
Yakshas and Yakshinis. The place is located near
Sankaran koil in Tirunelveli district.
• Unique Muragan Temple carved from a piece of rock, a
vimana differing from usual being of octagonal shape
embellished with lion heads. Most figures of gods/
goddesses are shown with musical instruments and with
the image of Siva holding a cobra looking life like in the
carving.
6.3.6 Srivaikuntam and Alwarthirunagari
• Two Vaishnav shrines on way to Tiruchendur from Tirunelveli, the former having a Nataraja
Shrine within 8 carved pillars; so placed to receive early morning sun’s rays on a particular
day of the month. The idols are exquisitely carved with animals.
• Another unique event is a settlement enclosed in a 10’ high mud wall from where women of a
particular clan ‘Kattai Pillaimars’ have never seen the outside world.
6.3.7 Nava Thirupathis
9 of the 108 Vishnu Temples is located at close proximity to each other in the district, in taluks
Srivaikuntam / Alwarthirunagari.
6.3.8 Manpad
An ancient 400 years old roman catholic church believed to have the relics of the cross on which
Christ was crucified and brought from Jerusalem. The association of St. Xavier with this and several
other small churches in the area has given it the nickname Chinna (small) Jerusalem.
6.3.9 Ottapidaram
Memorial to freedom fighter Chidambran

6.3.10 Ettaiyapuram
• Palace devoted to Ettapar, a ruler in 1565 who was a tax collector for the Pandya kings.
• Memorial devoted to Subramanya Bharti poet and freedom fighter.
6.3.11 Panchalankurichi
• A historic village and home to warrior Kattoboman, 17th century fort under the Archaeological
survey of India
• Temple of Jakamma, a family deity of Kattoboman’s
• British cemetery near fort
• Kayathru, where Kattoboman was hanged for treason, also a Vishnu Temple at that place.
6.3.12 Athichanallur
A settlement on the banks of Tamirabarani where an ancient civilization existed. The state
archaeological department has discovered evidences of the existence of an ancient race.
6.3.13 Korkai Port
Believed to have been a port city during Pandyan rule (in Srivaikuntam taluk) and now fairly inland as
is being discovered through research.
6.4 Heritage Conservation
• All temple precincts other religious structures, archaeological sites and other heritage areas
should be mapped and a Heritage precinct be demarcated. A Heritage renewal plan for
improvement and conservation be prepared.
• Temples within forests or on river banks should be safeguarded from discharge into rivers /
damage of any kind. Sustainable source of water is important for tourism.
• Temple and heritage trails could be created with pilgrim facilities en route of especially the
group of a Vaishnav Temples
• Most temples could do with improvement works for pilgrims and visitors and could contain
within their premise, a small information kiosk, historic/records centre, picture post
cards, “know your temples”, a research and documentation centre, a training school
for understanding religious texts, their recording studios, accompanying musical
verses, musical instruments, the making of traditional prasadams, an interpretation
centre for allowing visitors a glimpse into traditions and culture, building construction
manuals of traditional wisdom now available only to shilpakars and sthapatis etc. A
whole new service sector industry for job creation could build around temples, historic places,
natural sites etc including rural tourism/exotic location & camping sites which are well
publicized on web sites of Tourism department, so that they are marketed well and
have drawing power.
6.5 State Interventions
There are several agencies/ institution of the state incharge of heritage aspects, as,
Government Museums; Archeology department; Dept. of archives and historical research;

Governmental Oriental Manuscript Library; a directorate of art and culture; regional cultural
centres; government music colleges and music schools; government college of architecture
and sculpture; Tamil Nadu archieves; the TN Iyal Isa; Nadaga Mandram; the TM Ovia Nunkalai
Kuzhu. In various ways they are required to keep alive and grow in the realm of fine arts, music,
sculpture, architecture, dance and other forms of cultural expression. The department of government
museums is entrusted the function of restoring old heritage buildings. There are a number of
museum on the anvil, the Rock art gallery, consolidation and modernization of 8 Archeological
sites, conserving monuments and temples etc. Theni district and the heritage sites within it should
be earmarked for funds and development activities in highly professional ways to give boost to
tourism aiming to generate jobs and incomes.
The Tourism and Culture department are aware of the economic benefits of Tourism and consider
that domestic tourists show keen interest in beaches, waterfalls, temples, temple festivals etc.
preferring a weekend for the purpose; the national tourist spends around a week by combining two
weekends whilst the foreign tourists are interested in exploring historical monuments and heritage
sites and can spend larger (15-30 days) time with almost a week devoted to Tamil Nadu.
Table 6.1: Tourist Arrivals in Tamil Nadu

Year Domestic Foreign Total (in lakhs)
2002 246.61 8.05 254.66
2003 270.59 9.02 279.61
2004 300.77 10.58 311.35
2005 323.39 11.79 335.18
2006 392.14 13.35 405.50
Source: Department of Tourism, Tamil Nadu 2007.
Evidently the growth is good but can be improved to cover other less explored areas of Tamil Nadu,
for the various types of tourism that can be on offer, as, Leisure Tourism; Pilgrim Tourism;
Heritage Tourism; Adventure-Rural Tourism etc. In the plans reflected by the State Government in
Tamil Nadu, there are more than 3000 temples which have given the state the title “Land of Temples’.
Exclusive temple circuits are popular tourist circuits in the state for domestic and international tourists.
However, most of these tourist centres are characterised by poor investments in heritage
development and inadequate infrastructure.
Concerned by the deterioration in general environment and the worsening of sanitary conditions in
our priceless heritage towns in particular, the Government of Tamil Nadu has taken up conservation.
This conservation programme is based on the principle that efforts should go beyond preservation of
monuments and encompass already built up areas.
As part of the action programme for conservation and development of historical, cultural and
‘priceless monuments’, the GoTN has identified 38 towns as Heritage areas ad constituted a Working
Group. The Department of Town and Country Planning has been requested to function as the nodal
agency and has been entrusted with the task of preparing development plans for the identified towns.
6.6 Issues and Concerns
Heritage conservation is a total concept. It drives development through interplay of several forces as
explained in the SWOT Analysis. Its impact can be felt when factors are orchestrated for synergies in
the physical, economic, environmental and cultural domains, when it can produce structural change,
improve and enhance natural environments and link up skills that make change a reality. As such for
Kayalpattinam and nearby heritage it is proposed to:
• Develop and integrate natural areas with heritage areas

• Involve community into conservation of heritage areas.
• Integrate employment generation and land policy to safeguard heritage/natural areas under a
Conservation Master Plan for ULB, Taluk and District.
• Heritage natural area connections must be strengthened by preparing Conservation Master
Plan for all Heritage area, and employment –income generation should be built in into the
program.
• Involve NGOs and private partners in Tourism growth.
• High end Tourist accommodation using sea front location for a high end Hotel complex,
between Tuticorin and Tiruchendur, preferably closer to Kayalpattinam and declaring it, as
a “Leisure Recreation Zone” to trigger mega investment into Tourism sector in the region.

CHAPTER - 7
URBAN GOVERNANCE AND URBAN REFORMS

7.1 Introduction
The institution of Municipal governance has been in existence in Tamil Nadu since long (District
Municipalities Act. 1886). The Twelfth Schedule (73rd and 74th Amendment) Act. 1992 has restated
the relation of the state to the ULB in matters of their executive functions, taxation arrangements,
revenue sharing with state, representation of women and weaker section of society.
The 74th Constitutional Amendment Act, 1992 has imparted constitutional status to the Urban Local
Bodies and has assigned appropriate functions to them. The Act proposes mandatory elections and
greater devolution of functions to the urban local bodies including city corporations. A constitutional
backing is given to the relationship of the Urban Local Bodies (ULBs) with the State Government with
respect to their functions and powers, ensuring of timely and regular elections, arrangements for
revenue sharing etc. Urban Local Bodies are given additional powers including preparation of local
development plans, programmes for ensuring social justice, environmental management etc. making
them responsive and responsible towards local needs. This is facilitated by Section 243 (W) of the
Constitutional Amendment (74th) Act, 1992.
With the passing of Tamil Nadu Urban Local Bodies Act, municipalities in the state have got additional
functions to perform such as regulation of land use, economic and social development aspects, etc.
7.2 74th CAA: Tamil Nadu Urban Local Bodies Bill
The Tamil Nadu Urban Local Bodies Bill, 1997, proposed to bring into effect a common legislation
governing all Urban Local Bodies in the State including Municipalities and City Corporations. This new
bill provides for several changes when compared to the existing Act and devolves more powers and
functions to the ULBs.
The TN ULBs Bill has particularly focussed upon issues related to finances, taxation, levy of tolls, levy
of fines, bylaws, service charges for solid waste removal, and specific provision for urban planning.
Provisions – Tamil Nadu Urban Local Bodies’ Bill

Issue of Municipal Bonds
Enhanced Sanctioning Limits
Property Taxation based on Carpet Area and Use of Building
Provision for levy of Tolls on Roads and Bridges
Powers enhanced to assess escaped assessment
Provision for levy of fine for non-filing, non-payment and false filing of property tax
Compulsory connection to underground drainage, if available
Disconnection of water supply for non-payment of property tax, water charges or for any other valid
reason
Provision for bylaws to control pollution
Provision to introduce modern methods to collect service charges on solid waste disposal
Provision to make Urban Town Planning as a function of the ULB

Box -7.1: Provisions – Tamil Nadu Urban Local Bodies Bill

Head Provisions under TN ULBs bill, 1997
Finance Specific provision for issue of bonds – Sec. 66 (1)
Monetary Limit for Sanction of The limit has been enhanced to Rs. 500 Lakhs – Sec. 76
Estimates
Taxation Property Tax to be collected based on the carpet area and use of
the building, used as a base; additional factors such as location,
type of construction and age of the building to be loaded on to the
base- Sec. 83 & 84
Specific provisions have been made with respect to water,
sewerage & education tax.
Water Tax- not to exceed 30 % of the Property Tax- Sec. 89
Sewerage Tax- Not to exceed 15 % of the Property Tax- Sec. 90
Education Tax- Not to exceed 5 % of the Property Tax- Sec. 91
Tolls Provisions to levy tolls on any road or bridge- Sec. 95
Powers to assess escaped Powers to assess escaped assessment only upto 6 years (12 half
assessment years- Sec. 97
Non filing of return and/ or non- (i)Levy of fine for non- filing of returns- Sec. 82 (6)
payment of property tax (ii) Levy of fine for non- payment of property tax- Sec. 99 (1)
(iii) Levy of fine for filing a false return- Sec. 99 (2)
compulsory connections to the Provision made to make connection to Underground Drainage
Underground Drainage System System compulsory, if connection available- Sec. 155 (3)
Disconnection of water supply Disconnection of water supply in case of non- payment of property
tax, water charges or for any other valid reasons- Sec. 160
Bylaws to regulate Industrial Provision made to draft bylaws to control Pollution- Sec. 161
Wastes
Modern methods for clearance Specific provision to introduce modern methods & to collect service
of solid wastes charges for solid waste removal & disposal- Sec. 176 & 177
Urban/ Town Planning Specific provisions made to include Urban Planning & Town
*
Planning as a function of the council- Sec. 40 (2) - includes
Regulation of land use and construction of buildings
Planning for economic and social development
Fire services
Urban Forestry, protection of environment and promotion of
ecological aspects
Note: * Subject to delegation by Government after consulting with the concerned administrative departments.
Box -7.2: Specific Provisions under TN ULBs bill, 1997
7.3 JNNURM Reform Agenda
Municipal reforms have been mandated under the JNNURM program and Municipalities have to take
a relook at the way they had been functioning especially in the area of generating and utilizing funds.
So far they had been accustomed to receiving funds requested from their State government for
urgently carrying out essential Capital works as well as their day to day operational costs, since their
capacity and competence was limited to simple task performance. It has now become important to
have a firm grip on the totality of their functions, the deliverables expected of them, and sourcing
funds for carrying them through. In the process they have to ensure that innovative ways are used to
shape their Form, Functions and the arrangement for Funds. They are essentially expected to adopt
the modern Double Entry Accrual based Accounting System which presents the municipality’s
financial health on an yearly basis; Reforms for augmenting their tax base by using technology
backed Information and Management systems; levying user charges commensurate with realistic
costs and thereby recovering O&M costs for services delivered; preparing budgets with sufficient
allocations for the poor; ensuring basic services reach them .Rent control reforms are expected to
safeguard landlords against short practices by tenants as well as improve the rental market; Tamil
Nadu proposes to amend their Building (lease and rent control) Act 1960 by this year end. Reforms of
Stamp Duty were undertaken in 2003 bringing it down from 13% to 8%; the ULCRA already stands
repealed in Tamil Nadu; Community Participation is expected to be in operation as a law for carrying
out watchdog functions for all the listed functions of the municipalities. E-governance too is an
important reform expected for inducing transparency into all the listed functions and services
delivered. Similarly Property Tax, an important revenue resource for all ULBs is required to be made
simple, transparent, non-discretionary and equitable.
However, the report is incorporating the reforms expected under UIDSSMT with the understanding
that they are more or less in line with the intent of the JNNURM reforms.
7.4 ULBs Organisational Structure
Post 1992 and the amendment in the Twelfth Schedule (73rd and 74th Amendment) Act, changes
were brought in the Municipal functioning to clarify relation of state to ULB for the functions of taxation
arrangement and revenue sharing as well as affording adequate representation of weaker section in
power sharing. A host of new arrangements ensured that the ULB be professionally equipped to
handle development and governance issues, and a listing of the 18 functions that were required to be
operated by them.
Kayalpattinam Municipality is a Grade-III Municipality regulated by the TN District Municipal Act,

1920. The town has 18 wards with adequate representation of women and SC/ST persons.
The Act specifies three types of Municipalities
(a) Nagar and Town Panchayat,
(b) Municipal Councils for smaller urban areas and
(c) Municipal Corporations for larger urban areas
The set up of ULB comprises of the Political Wing and the Executive Wing, the former consisting of
elected councillors from different wards in the town and is headed by the Chairman. The Executive
Wing is headed by the Executive Officer helps in the functioning of the ULB by supporting the political
wing in the decision making process.
Fig. 7.1: Existing Organizational Structure
Executive Officer
Chairman
Vice Chairman
Manage Municipal Revenue Municipa Town Asst.
r Engineer Officer * l Health Plannning Programmer
Elected Officer/ Officer *
Councillors SO
one from
Accountant AEE
each ward ARO * ATPO
AE/JE S.I
RI / RA /S.O *
TPI
Committees-
-Tax
-Appointment
* These posts are vacant but they have persons in-charge from neighbourhood municipality
7.4.1 Political Wing
The municipal council, the political arm of the municipality consists of 18 elected councillors, each
representing a ward. The chairman (elected from among the councillors) heads the municipal council,
which performs its duties as per the provisions of the District Municipalities Act. The political wing
provides an overall direction to the municipality and performs its functions through a set of
committees (not exceeding three in number) constituted for different purposes. There is no ward
committee in the local body. However, as per the act, two committees’ viz., taxation appeals
committee and appointment committee have been formed consisting of the chairman, the Executive
Officer and elected representatives as members.
Taxation Appeals Committee

This committee addresses the appeals filed by the public against the orders on the revision of taxes.
The committee consists of four members; the chairman of the municipality is the chairman of the
committee and three councillors.
Appointment Committee
The committee is responsible for appointments to all posts for which the pay exceeds Rs. 50/- per
month under the municipal council. It consists of three members comprising the EO, the chairman and
one member elected by the council.
7.4.2 Executive Wing

The executive wing is responsible for day to day operations of the municipality, and is headed by the
Executive Officer (EO). The EO is the administrative head of the municipality and is supported mainly
by four departments in the operations. The organisational structure of the municipality comprises of
four functional departments. Kayalpattinam municipality consists of four functional departments;
general administration, engineering, public health, and revenue. Each department consists of a head
who reports to the EO and functions as per the responsibilities prescribed in the act and as delegated
by the EO.
General Administration/Personnel Department

Kayalpattinam Municipality is the Third Grade Municipality. Head Clerk is the head of Administration next to
Executive Officer in the branch of General Administration, and is responsible for general supervision and
administration of office. All establishment matters are dealt with in the General Administration.
Revenue Department
It is another wing of the Municipality, headed by the Bill Collector and he is responsible for tax collection such as
house tax, water charges, professional tax and entire Revenue collection.
Public Health Department
The Municipal Sanitary Inspector is the overall in-charge of the Health Section. He looks after the prevention of
food adulteration, conservancy work, sweeping of streets, maintenance of drainage, controlling of epidemic
diseases, ensuring of license to D&O trades, Birth and Death Registration, issuing certificate to birth and death
registrants. The sanitary supervisor and sanitary workers are assisting the municipal sanitary inspector.
Engineering Department
The Engineering Department is responsible for all Public Works, and maintenance of civic facilities. This
Department is responsible for:
• Public Works (Construction and maintenance of roads and storm water drains),
• Maintenance of school buildings,
• Construction and Maintenance of Public Conveniences,
• Maintenance of other facilities viz., Bus stand, Markets, etc.
• Street Lighting (Maintenance of Street Lights)
• Water Supply and Sewerage (Provision and operation and maintenance of water supply and sewerage
system)
• Parks & Gardens (Maintenance of parks and gardens)
The engineering department co-ordinates with Tamil Nadu Water supply & Drainage Board (TWAD) and other state
government agencies to implement water supply and other developmental works. The department is responsible for
ensuring the quality of works and their timely completion. The municipal engineer (of executive engineer level)
heads the engineering department, and is assisted by assistant engineers and other staff.
The staffing pattern of Kayalpattinam municipality is given in Table 7.1 on next page.
Table 7.1: Staffing Pattern – Executive Wing
Name of the Post No. of Posts Sanctioned Permanent Posts Vacant

General Administration
Executive Officer 1 1 -
Office Assistant 1 1 -
Accounts Department
Name of the Post No. of Posts Sanctioned Permanent Posts Vacant

Head Clerk 1 1 -
Junior Assistant 3 3 -
Bill Collector 4 3 1
Public Health
Sanitary Inspector 1 1 -
Sanitary Supervisor 2 2 -
Sanitary Workers 33 27 6
Water supply
Night watchman 1 1 -
OHT watchman 1 1 -
Fitter Grade II 1 1 -
Driver 1 1 -
Total 50 43 7
Against the total of 50 posts, 43 are in place. Vacancies are at lower range of 6 sanitary workers. The
proportionate divisions of jobs are as:
Top job :1
Managerial job :4
Support /Technical Jobs :9
Lowest range unskilled jobs : 36
Though not very vertical in structure, the lowest level jobs tend towards a larger base due to several
manually performed operations.
7.5 Reforms for ULB under UIDSSMT
Some mandatory reforms are foreseen to enable efficient ULB management and delivering reliable
services, which entails restructuring reorganization so that to routine /other functions are performed in
a streamlined way, speedily and with transparency. The mandated reforms are:
• Adopting Modern Accounting procedures (double entry accrual based)
• Introducing e-governance with IT applications of GIS and MIS for services provided by the
ULB
• Property tax reforms, using GIS, and improving collection efficiency to 85 percent in next 7
years.
• Levying user charges to recover O & M costs fully within next 7 years.
• Introducing budgetary provisions for the urban poor.
• Providing housing, basic services, secure tenure and other social services by the Government
to the urban poor.
The optional reforms revolve around:

• Speeding and revising approval process for building activity.
• Simplifying process for conversion of land to Urban Land uses.
• Introducing property tax certification.
• Earmarking 25 percent land to EWS/LIG and arranging cross subsidy for their living.
• Introduce water harvesting.
• Use recycled water.
• Reduce administrative costs by cost cutting measures on non essential staff.
• Encourage PPP.
7.6 Mandatory Reforms at Urban Local Body
Mandatory reforms as mentioned by the local body include:

• Adoption of modern, accrual-based double entry system of accounting in Urban Local Bodies /
Parastatals

• Introduction of system of e-governance using IT applications like, GIS and MIS for various services
provided by ULBs / Parastatals.
• Reform of property tax with GIS, so that it becomes major source of revenue for Urban Local
Bodies (ULBs) and arrangements for its effective implementation so that collection efficiency
reaches at least 85% within next seven years.
• Levy of reasonable user charges by ULBs/Para-statals with the objective that full cost of operation
and maintenance or recurring cost is collected within next seven years.
• Internal earmarking within local body, budgets for basic services to the urban poor.
• Provision of basic services to urban poor including security of tenure at affordable prices, improved
housing, water supply, sanitation and ensuing delivery of other already existing universal services
of the Government for education, health and social security.
7.6.1 Status of Mandatory Reforms in Kayalpattinam
• Accrual-based double entry system of accounting is in process.

• Kayalpattinam has initiated e-governance system, but IT applications like GIS and MIS for various
services are still to be initiated.
• Reform of property tax with GIS is to be initiated.
• Rs.227.40 lakhs is estimated for the provision of basic services to urban poor under IHSDP.
7.7 Multiplicity of Line Agencies
In addition to the Local Body, there are various other organisations, State and Central that plays an
important role in the town’s management.
However, the functions of each department are in accordance with the agency’s commitments and
responsibilities. Works taken up are based more on the regional context, however, not necessarily in
line with the town’s requirement. Works, which could be handled by the available expertise and
facilities of a concerned agency, are invariably never taken up, as they do not fall under the planned
operations of the agency. A typical example (given below) makes evident in the case of a typical
example of how functions overlap in for, say, monitoring of pollution in a town by different line
agencies.
Table 7.2: Line Agencies Operating in Kayalpattinam
Agency Responsibility
Local Planning Authority (LPA) Town Planning – By-laws for Pollution Control
Public Works Department (PWD) Maintenance of Tanks & Drainage Channels incorporating
anti-pollution measures.
State Highways & Rural Works Planning, Strengthening & Upgrading State Highways/ Roads
(safety measures)
National Highways (NHAI) Planning, Strengthening & Upgrading National Highways
(safety measures)
Tamil Nadu Water Supply & Capital Works- Water Supply & Underground Drainage
Drainage Board (TWAD) (Sewerage) – incorporating treatment/ adherence to
standards
Tamil Nadu Pollution Control Monitoring Industrial Pollution in Town and Region.
Board (TNPCB)
Source: IPE’s Assessment
7.8 Issues
The municipality, in the interest of the town’s residents, has taken numerous steps in addressing the
service related problems. Issues remain unaddressed due to gaps in management and efficient
accounting procedures. Two notable issues are presented as under.
(i) Lack of Awareness and Expertise: There is a general inability of personnel in the Municipality and
specifically the engineering department to comprehend planning issues and correlate them in the
engineering designs. This has also resulted in the area not receiving adequate attention and
importance.

(ii) Lack of effective HR Management: There is a general lack of effective communication & support
systems, outdated systems, identity crisis, low job esteem and constant interference from the state
government subjects which is observed to have been making the Municipality employees’ redundant
and declining morale. The productivity is generally very low in the present competitive environment
between the urban local bodies. On the whole it is the lack of human resource management at the
Local Body level that has resulted in the ineffective discharge of duties and finally the service delivery
to citizens of the town.
7.9 Reforms Undertaken by Kayalpattinam ULB
7.9.1 Computerization Initiatives
The Kayalpattinam Municipality is maintaining Computer centre and electronically records/ issues all
birth and death certificates on the spot. The general particulars are all computerised. Municipal office
issues Birth & Death Certificates without any delay. The municipality has computerised the bill
collection system for property taxes.
• The activities of the municipality are computerised and linked to the Regional Directorate of
Municipal Administration, Tirunelveli (RDMA).
• The municipality is currently in the process (since 1/4/2007) of preparing data base for the all
property tax assessments, annual accounts and assets. The infrastructure details, town
planning details and mapping (GIS) will be taken up soon.
• This database will help the municipality in effective collection of the current as well as the
arrear dues.
7.9.2 E-Governance Reforms
The computerisation effort has improved the collection efficiency of the municipality and this can be
termed an important tax reform.
7.9.3 Citizens Charter
Tamil Nadu government has decided to issue a "citizen's charter" in order to make its functions
transparent, responsible and friendly. The government has issued orders directing the local bodies to
frame such citizen's charters defining clear and basic principles. Kayalpattinam municipal council has
also framed citizen's charter for the people of this town. The content of the one such ideal Citizens
Charter is provided in Annexure-II.
7.10 Recommended Organisational Structure

Overseeing the list of functions, it is observed that the functions relating to urban planning, land use,
regulating the construction of building, are not yet being performed by the municipal authority. Very
little is being done by the municipalities in relation to basic service to urban poor, though DPR for
BSUP’s is new under the ULB’s urgent attention.
The present organizational structure of municipal authority is designed only to meet the present
needs and is not adequate to perform all the functions envisaged in the 12th Schedule of the
Constitution.
Reforms will be needed in governance by
• Clearly identifying the tasks and sub tasks that Kayalpattinam is required to perform
• An information module which is accessible electronically and otherwise to the citizens of the
town as an interface between them and the Municipality
• It is prudent to agglomerate ULBs for infrastructure requirements water, sewerage, solid
waste management, transportation and other infrastructure so as to create scale and facilitate
development in a holistic way. These should be more external oriented rather than inward
based.
• There should be forums for continuing dialogue between people and councillors on a regular
periodic basis, preferably as calendar events which should be well publicized.

The Municipality needs to undertake more functions under the 74th CAA for which the organizational
structure must modify and accommodate. A suggested structure is provided in Table 7.3
• The structure envisages 6 functional heads which are coded as
Code 1: GENERAL ADMINISTRATION
Code 2: ENGINEERING & PHYSICAL INFRASTRUCTURE
Code 3: SOCIAL INFRASTRUCTURE
Code 4: POVERTY SLUMS & HOUSING
Code 5: URBAN PLANNING, DESIGN AND HERITAGE
Code 6: BUDGET AND ACCOUNTS
• These functional heads are further split into SEGMENTED FUNCTIONAL CODES as
Eg.: 1A & 1B; 2A to 2 F; 3A to 3B; 4A to 4 F; 5A to 5B; 6A to 6C. (For details see Table 7.3)
• Under each Segmented functional code are the delivery TASKS. (For details see Table 7.3)
Table 7.3: Proposed Organization Structure for Kayalpattinam

Code Functional Head Sub Code Wings/ Tasks
1 Central Administration 1A General Administration matters
1A.1 Establishment matters
1A.2 Personnel policy, Career growth, Training
Appointments, Promotions, vigilance
1A.3 matters
1B IT
1B.1 IT Networking
1B.2 IT Support, IT Training
1B.3 Website management
1B.4 Trouble shooting, General maintenance
1B.5 Archival,
1B.6 IT Upgrade
2 Engineering 2A Water Supply
2A.1 Internal network design
2A.2 O&M Asset management
2A.3 Water testing
2A.4 Complaints redressal
2A.5 Repair and renewal
2A.6 Any other
2B Sewerage
2B.1 Internal network design
2B.2 O&M Asset management
2B.3 Waste water treatment & disposal
2B.4 Waste water recycling
2B.5 Testing
2B.6 Regulating discharge
2B.7 Composting / gasplant / any other
2C Roads and Drains
2C.1 Design and civil works for roads and drains
2C.2 Storm water disposal
2C.3 Maintenance of roads / drains
2C.4 Road furniture
Road junctions, sidewalks, markings and
2C.5 signage
2C.6 Bus bays
2C.7 Traffic related trouble shooting
2C.8 Parking lots, selecting sites
2D Street lighting

2D.1 Procurement
2D.2 Design & laying of UG cables
2D.3 O&M Asset management
2D.4 Sub-station / others
2E Parks / playgrounds
2E.1 TOI lots
2E.2 Parks and playgrounds
2E.3 Recreational sites
Horticulture, water bodies, water
2E.4 catchment area protection
2E.5 Roadside plantation and avenues
2E.6 Urban vegetable / fruit gardens
2E.7 Forest protection
2E.8 Wet area conservation
2E.9 Quarry sites improvement / renewal
2E.10 Degraded areas improvement
2E.11 Nurseries, fisheries, zoos, agro area, other
2E.12 Ecological safeguards
2F Solid Waste Management
2F.1 Primary collection
2F.2 Storage and collection
2F.3 Disposal site
Engineered landfill / O&M management
2F.4 construction
2F.5 Vehicle asset management
Recycling, composting, segregating, on site
recycling, on site composting, community
groups / organisation / SHGS / involvement
2F.6 of NGOs in Waste management
2F.7 Any other like project and site development
3 Social Infrastructure 3A Education
Monitoring / site selection for primary,
secondary,
3A.1 Higher secondary
3A.2 Colleges / Institutions
3A.3 Any other
3B Health
Monitoring / site selection for establishing
3B.1 Hospitals/ Clinics /Nursing homes
3B.2 Ensuring Hazard free environments
3B.3 Any other
4 Poverty, Slums and 4A In situ slum improvement
Housing 4B Slum relocating / replanning
4C Poor Services Provision
4D Livelihoods and Community,
Poverty assessment, Program, design,
4E executing, monitoring, evaluation
4F General Planning
5 Urban Planning Design Urban plan making, Environmental
and Heritage 5A considerations
Plan monitoring, regulation, encroachment
5A.1 prevention

Ward area plans, ward area need
assessment ,
5A.2 monitoring
5B Building and Design
5B.1
Building rules, structural safety, Green
building, guidelines, architectural elements
and components, vernacular architecture
guidelines, environment guidelines
Plan enforcements, Building law
5B.2 enforcement
5B.3 Conservation guidelines and enforcement
5B.4 Heritage section,
Heritage improvement
Heritage conservation and regeneration
Heritage based promotional activities
Heritage-tourism promotional activities
Marketing section
6 Budget and Accounts 6A Taxation and Revenue related activities
6B Finance and accounts related activities
6C Any other
7.11 Suggestions
• Speeding up e-governance in the taluk and improving the tax collection system.
• Capacity building to the ULB staff on performance efficiency and benchmarking it with use of
performance indicators.
• It is feasible that ward level plans be prepared for effective community participation.
• Local governance strengthening is important, especially having a separate tax domain.
• Community participation as an ongoing process, should be facilitated by the ULB as a
periodic calendar event, with a monitoring cell in place to ensure that participation results in
community supported actions (It is not necessary to always have laws to tell people how to do
what). As city scales enlarge, participation may be segmented to go up to neighbourhood
level.
• Rent control Laws, if any, have to be reviewed.
• Water supply, user charges, leaking systems, billing systems, illegal connections,
discretionary supply are matters where reforms have to be ensured, so that O & M costs are
recoverable.
• Documenting and disclosing published information by the ULB on decisions taken, including
financial statements, projects details and other information of common interest to the citizens,
will ensure an accountable ULB.
• Most municipalities have proportionately high wage bills and pension payouts; the reforms
underway suggest that 35% of revenue expenditure only should go to salary bills. This entails
cost cutting on wages for unnecessary personnel and reducing the number of employees.
• New Municipal Accounting systems have already been suggested elsewhere.
• Making room for PPP signifies sharing of risks, opportunities, responsibilities and rewards
and paves the way for a smoother and more satisfactory development culture.

CHAPTER - 8
MUNICIPAL FINANCE
8.1 Introduction
Kayalpattinam Municipality used to maintain accounts on a single entry cash basis till the financial
year 2001-02. The ULB was upgraded from Town Panchayat to Grade III in the financial year 2004.
In the financial year 2002-03 & 2003-04, the ULB maintained accounts as per Town Panchayat
Accounting Manual i.e. Double entry accrual based accounting (non-fund based).
The ULB is supposed to maintain Fund Based double entry accrual accounting as per Tamil Nadu
Municipal Accounting Manual from FY 2004-05. However, this switchover has not been fully made
functional. Under the present system the ULB prepares Income & Expenditure and Balance sheet at
the financial year end. The account of this ULB has been audited up to FY 07. The accounts of ULB
can be broadly segregated into receipts and payments. The receipts are classified into income and
liabilities and the payments are classified into expenditure and assets.
8.2 Revenue Account
The revenue account comprises of recurring items of receipts (taxes, fees, grants etc.) and payment
account essentially transactions related to the ULBs operations. The table below summarizes the
status of the ULBs revenue account.
Table 8:1: Revenue Account (in lakhs)
Particular FY03 FY04 FY05 FY06

Revenue Income 101.54 123.00 126.96 119.12
Revenue Expenditure 110.70 106.08 186.05 125.40
Surplus/Deficit -9.16 16.91 -59.09 -6.28
Fig 8.1 Trends in Revenue Income and Expenditure
The CAGR for Revenue Income is 5.47 percent while the CAGR for Revenue Expenditure is 4.24
percent. The Municipality has shown a deficit in all the years except in FY 04. Highest deficit was
shown in FY05.
8.3 Revenue Receipts
Receipts under this head include taxes, fees, grants, income from properties and special services.
i) Taxes - own sources – This includes property tax, professional tax and other taxes collected by
the Municipality. In FY 06, the tax receipts accounted for Rs.28.43 Lakhs.
ii) Taxes - Assigned Revenue - Taxes collected by other agencies include entertainment tax, duty
on transfer of property, taxes on carts and animals etc this accounted for Rs. 4.61 lakhs in FY 06.
iii) Non-tax Revenue - This head includes Income from Fees, Properties, Special services &
Miscellaneous. This head amounts to Rs.45.83 lakhs in the FY 06.
Table 8.2: Revenue Receipts (Rs. In Lakhs)

S. No. Particulars FY03 FY04 FY05 FY06 CAGR
1 Property Tax 14.36 15.29 17.56 19.31 10.37
2 Other Taxes 6.92 7.06 9.19 9.12 9.66
3 Service Charges & Fees 26.23 32.04 41.01 45.83 20.44
4 Sale & Hire Charges 0.82 0.00 0.25 0.00 -100.00
5 Other Income 1.83 6.04 16.13 10.36 78.18
6 Assigned Revenue 21.94 17.09 11.04 4.61 -40.56
7 Devolution Fund 29.44 45.48 31.73 29.89 0.51
8 Grants & Contributions 0.00 0.00 0.05 0.00
Total 101.54 123.00 126.96 119.12 5.47
Source: Kayalpattinm Municipality
Table 8.3 Revenue Receipts as Percentages of Total Revenue Receipts (value in %)

S. No. Particular FY03 FY04 FY05 FY06 Average
1 Property Tax 14.14 12.43 13.83 16.21 14.15
2 Other Taxes 6.81 5.74 7.24 7.66 6.86
3 Service Charges & Fees 25.83 26.05 32.30 38.47 30.66
4 Sale & Hire Charges 0.81 0.00 0.20 0.00 0.25
5 Other Income 1.80 4.91 12.70 8.70 7.03
6 Assigned Revenue 21.61 13.90 8.70 3.87 12.02
7 Devolution Fund 28.99 36.97 24.99 25.09 29.01
8 Grants & Contributions 0.00 0.00 0.04 0.00 0.01
Total 100.00 100.00 100.00 100.00 100.00

Fig 8.2 Source wise Revenue Income (%)
• The amount under most of the heads is growing however their share to the revenue receipts in
the respective years is varying. Revenue receipts have increased from Rs.101.54 lakhs in FY03
to Rs.119.12 lakhs in FY06. It has shown an increasing trend over past 4years.
• Property tax has shown a promising upward trend.
• Devolution funds and service charge and fees occupy a significant share of the revenue income
over the years.
Fig 8.3 Average Share of Revenue Income (%)

As seen from the graph, Service Charges and fees (30.66%) and Devolution Funds (29.01%) share a
significant component of the revenue income, followed by Property tax (14.15 %).
8.4 Revenue Expenditure

Kayalpattinam municipality uses the resources for general administration, operation and maintenance
of services and public works. Revenue expenditure during FY03 was Rs.110.70 lakhs and in FY06 it
increased to Rs. 125.40 lakhs.
i) Personnel Cost - This constitutes one of the major components of expenditure. It has
increased from Rs. 32.10 lakhs in FY03 to Rs. 35.44 in FY06.
ii) Operating Expenses - This includes the O&M of core services and it accounts to Rs 39.72
lakhs in FY06.
iii) Finance Expenses - This is an important component and amounts to Rs. 0.03 lakhs in FY06.
Table 8.4: Break – Up of Revenue Expenditure (Rs. In Lakhs)

S. No. FY03 FY04 FY05 FY06 CAGR
1 Personnel Cost 32.10 33.12 35.46 35.44 3.36
2 Operating Expenses 52.34 54.23 69.00 39.72 -8.78
3 Programme Expenses 0.00 0.03 0.00 0.00
4 Administration expenses 6.88 3.41 33.65 3.61 -19.35
5 Finance expenses 8.00 0.00 17.48 0.03 -84.49
6 Depreciation 11.39 15.29 30.47 46.60 59.93
Total 110.70 106.08 186.05 125.40 4.24
Table 8.5 Revenue Expenditure as Percentage of Total Revenue Expenses (value in %)

S. No. FY03 FY04 FY05 FY06 Average
1 Personnel Cost 28.99 31.22 19.06 28.26 26.88
2 Operating Expenses 47.28 51.12 37.09 31.68 41.79
3 Programme Expenses 0.00 0.03 0.00 0.00 0.01
4 Administration expenses 6.21 3.21 18.09 2.88 7.60

5 Finance expenses 7.23 0.00 9.39 0.02 4.16

6 Depreciation 10.29 14.41 16.37 37.16 19.56
100.00 100.00 100.00 100.00 100.00
Fig 8.4 Component wise share of Revenue Expenditure (%)
Fig 8.5 Average Share of Revenue Expenses (%)
As seen from the graphs above, on the expenditure side the ULB a significant percent of the
expenditure is spent on personnel followed by operating expenses and depreciation.
8.5 Trends in Income & Expenditure
Income has increased at an average of 6.6% over past few years on the other hand expenses have
increased at an average of 12.87% over the years. Income & Expenditure trend of the municipality is
shown in the following tables and figure.
Table 8.6: Growth Rate in Revenue Income (%)
S. No. Expenditure FY04 FY05 FY06 Average
1 Property Tax 6.47 14.85 9.96 12.40
2 Other Taxes 2.02 30.26 -0.78 14.74
3 Service Charges & Fees 22.17 27.98 11.75 19.87

4 Sale & Hire Charges -100.00 -100.00

5 Other Income 229.63 167.12 -35.75 65.68
6 Assigned Revenue -22.10 -35.40 -58.28 -46.84
7 Devolution Fund 54.48 -30.23 -5.79 -18.01
8 Grants & Contributions -100.00
Total 21.13 3.23 -6.18 6.06
S. No. Expenditure FY04 FY05 FY06 Average
1 Personnel Cost 3.19 7.05 -0.05 3.40
2 Operating Expenses 3.62 27.24 -42.44 -3.86
3 Programme Expenses -100.00
4 Administration expenses -50.40 886.56 -89.28 248.96
5 Finance expenses -100.00 -99.83
6 Depreciation 34.20 99.27 52.96 62.14
Total -4.17 75.38 -32.60 12.87
Fig 8.6 Growth Rate in Revenue Income and Expenditure
8.6 Demand Collection Balance (DCB) Scenario
The following tables are with respect to property tax, professional tax and water tax which are the
major sources of income to the Municipality.
8.6.1 DCB for Property Tax
In FY06, the total demand for property tax (including arrears and current) stood at Rs.20.13 lakhs of
which only Rs.16.26 lakhs has been collected with a collection performance of 81 percent. The
average total collection efficiency over the years is 94 percent.
Table 8.8: Demand Collection Balance for Property Tax (Rs. In lakhs)
Sl. No. Particulars 2002-03 2003-04 2004-05 2005-06

A. Demand
1. Arrears 0.31 0.15 0.02 0.83
2. Current 14.36 15.29 15.81 19.31
3. Total 14.67 15.44 15.83 20.13
B. Collection
1. Arrears 0.00 0.00 0.00 0.00
2. Current 14.32 15.17 15.82 16.26
3. Total 14.32 15.17 15.82 16.26
D. Collection Analysis
Arrears (%) 0% 0% 0% 0%
Current (%) 100% 99% 100% 84%
Total (%) 98% 98% 100% 81%
Fig 8.7 Collection Efficiency for Property Tax (%)
8.6.2 DCB for Professional Tax
The total demand in FY06 was Rs.13.97 lakhs and Rs 6.30 lakhs was collected with a collection
efficiency of 45 percent.
Table 8.9: DCB for Professional Tax (Rs. in Lakhs)

Sl. No. Particulars 2002-03 2003-04 2004-05 2005-06
Rs. In lakhs
A. Demand
1. Arrears 2.25 2.31 2.06 4.85

2. Current 6.92 7.06 9.19 9.12

3. Total 9.17 9.37 11.26 13.97
B. Collection
1. Arrears 0.20 0.47 0.22 0.00
2. Current 6.66 3.84 9.42 6.30
3. Total 6.86 4.31 9.64 6.30
C. Collection Analysis
1. Arrears (%) 9% 20% 11% 0%
2. Current (%) 96% 54% 102% 69%
Total 75% 46% 86% 45%
Fig 8.8 Collection Efficiency for Professional Tax (%)
8.6.3 DCB for Water Charges
The total demand in FY06 was Rs.44.44 lakhs and Rs.32.08 lakhs was collected with a collection
efficiency of 72 percent.
Table 8.10: DCB of Water Charges (Rs in Lakhs)
Water Charges 2002-03 2003-04 2004-05 2005-06
A. Demand
1. Arrears 5.44 7.14 16.46 4.84
2. Current 18.55 26.21 37.68 39.60
3. Total 23.99 33.35 54.14 44.44
B. Collection
1. Arrears 2.15 2.60 4.82 4.84
2. Current 14.70 26.12 27.62 27.24
3. Total 16.85 28.72 32.44 32.08
C. Collection Analysis

1. Arrears (%) 40% 36% 29% 100%

2. Current (%) 79% 100% 73% 69%
70% 86% 60% 72%
g 8.9 Collection Efficiency for Water Charges (%)
8.7 Ratio Analysis
Ratio of revenue expenditure to revenue income has been mentioned below.
FY 03 – 1.09
FY 04 – 0.86
FY 05 – 1.47
FY 06 – 1.05
The OR for financial year is more than 1 for all the years except FY 04, which could be attributed to
instability in the efficiency of revenue management, or, a high dependency on state devolved funds
for revenue income.

CHAPTER - 9
DEVELOPMENT OF PERSPECTIVE AND VISION OF THE CITY
9.1 Spatial Perspective for Kayalpattinam 2041
A comprehensive view of Kayalpattinam was derived and several fronts explored for preparing a draft
vision for the ULB. These included a SWOT analysis, stakeholders meeting, interviewing citizens,
officials and key stakeholders, and consolidating their views, as well as a detailed analytical
assessment of the state and district potential to contribute to the ULB’s growth. On the basis of these
datasets, a Spatial Perspective Plan for Kayalpattinam 2041 was prepared (see Map 13) The plan,
indicative of the new focal developments and its sustaining infrastructure, on approval, with or without
adjustments, would help generate a City Development Plan (CDP) along with a five year project
profile in a draft suggestive form, as incorporated later in this chapter.
To mandate the CDP into an implementable document would need preparation of schemes and ward
plans for actualizing listed projects and covering deficient development in the city. This would require
fast tracking approval by the ULB/ State for a healthy development process.
9.2 Sector Specific Objectives and Projects
9.2.1 A Spatial Growth Strategy (Town Level)
Kayalpattinam’s spatial development relies on preparing the town for its future role as a leading urban
area in a region where economic growth has had a late start.
The district economy is a mix of agriculture-port and marine oriented-industry; the urban areas in the
district show heavy reliance on service sector growth (a larger literate work force) so strategies for
jobs in service sector will shape economic growth.
• Accordingly, the town can use its strength as a sea facing one and permit entry of
Tourism (pilgrim-eco tourism – port / industry / business tourism) and aggressively market it
as resort town for short stay. The estuary area Tamirabarani river and its vicinity can be
an appropriate for such an activity in small village like environments and indigenously
designed buildings, close to nature, independent and secluded from city functions etc.
subject to feasibility studies and land availability.
• The town lacks identity with a near absence of any landmark. Introducing one at the sea edge
as an Observation Tower for metrological purpose / tsunami and disaster warming
station / telescope fitted viewing space for young astronomers / general viewing tower
for a panoramic view of the sea could be an interesting project for the town. Electronic
display of time/temperature/humidity/ other messages in the tower would be an added
advantage. An elevator to reach a 30m. high tower would be an exciting project for
town dwellers, especially the youth and children. It would symbolise entry into
modernism.
• 50m wide beach as stipulated under the CRZ would require removal of encroachments of any
kind.
• Another 50m. wide parallel green zone would enable cash crop of cashew plantation whilst
also acting as green zone / recreation zone.
• A business hub in two parts could be located on the site between Railway line and SH 40;
one for sale of fish (fresh cured-dried-other marine products); and two, for high value
jewellery making / sale in secure environments alongside local traditional handicraft display-
sale-fabrication in open ‘haat’ environment.
• The town growth would have to infill vacant sites and gradually redensify its housing

components.
9.2.2 Spatial Growth Strategies – Regional Level
• Regional tourism circuit should be promoted.

• Heritage traits should be demarcated.
• Ecotourism is possible due to Marine Reserve Park in Tuticorin, and several islands along the
coast line.
• Disaster Management should be built into town growth strategies.
• Local initiatives / partnerships for tourism projects, their marketing – transport – accommodation –
catering – other services must be developed.
• Develop local and regional skills, talent and entrepreneurship upgrading them to present day
needs.
• Re-densify existing town with infill development also improve physical – social infrastructure
and create aesthetic environment for enhancing Quality of Life (QOL).
9.2.3 Short Term Projects (2008 - 2013)
• Initiate site selection, conduct feasibility studies for new development areas in the town and peri-
urban zones.
• Project CRZ Zone. Develop parallel Green Zone, thereby protect 100m inland of sea.
• Improve roads – drains – footpaths – road markings – signage – road furniture.
• Set-up information centres for registering skilled persons, SHGs, informal sector groups. Use
best practices of ‘Reddy’s LABS’ for organising informal sector activities.
• Fill gaps in community toilets, public conveniences.
• Plan and execute bus stand project (with 30 year perspective for traffic growth).
• Substitute all street lights with low energy luminaries; cover gaps in illumination.
• Improve garbage removal by composting – segregation – exploring recycling possibilities in
Kayalpattinam.
• Build community halls at appropriate locations.
• Establish Tourism Information & Promotion Centre within the Tourist Home Zone.
• Establish task force and design teams for Ecological Resource and Water Body Improvement.
• Prepare ward plans for re-densifying residential areas.
• Establishing / outsourcing GIS mapping centre.
9.2.4 Prioritisation of Projects
Projects have been prioritized to ensure that;

• They represent projects across sectors,
• Are short term, implementable in five years
• Preferably executed in public private partnership mode,
• Okayed by stakeholders,
• Have innovative elements for achieving ‘newness’/ demonstration effect.
On the basis of the detailed discussion with the Stakeholders of the town and analysis of the existing
situation prioritized project list for the ULB was prepared, as below:
1. Water Suppy ( Pipe Upgradation for 5 Km)

2. Sewerage System
3. Road
4. Street light ( High Mast – 4 Nos)
5. Solid waste Management
6. Community Hall
7. Compost yard
8. E – Governance
9. Others
The wish list which was presented by the ULB was very limited and was not in compliance with the
sustainability of the town. Therefore a comprehensive proposal was developed by the consultant in
conformity with the standards set in UIDSSMT scheme and CPHEEO manual which is presented in
the chapter 10.
9.3 Infrastructure Projects
9.3.1 Water Supply
(i) Objective
Increasing the coverage and service levels for piped water supply with assurance of its potability.
(ii) Identified projects
- Ensuring that water supply to Kayalpattinam Municipality, required for 2011, 2021, 2031 and
2041 are available to the acceptable standard.
- For timely augmentation, DPR made must be implemented at the earliest possible.
- Mapping and GIS
- Long term water supply demand calculated over 5 year periods beyond 2012.
- Treatment and storage facilities for above discussed demand with pumping facilities.
Table 9.1 : Water Supply Projects ; Prioritisation and Time Frame
S. No. Identified Projects 2009 2010 2011 2012 2013
1 DPR implementation for augmenting future water
supply
2 Covering Deficient demand upto 2012,
construction of ESR/UG sump, supply network
3 Mapping & GIS
9.3.2 Sewerage/ Under Ground Drainage
(i) Objective
To prevent health risks due to poor sanitation, and create healthy communities by covering the entire
town, including slums, with sewerage network.
Short Term Strategy
- Introduce sewer lines, by first designing a network to cover existing HHs through a system of
STPs in decentralized way for micro zones and planning for population projected to 2011.
- Serialize the network construction for every 5 years prioritizing it as per local demand
- Construction of Community Toilets as per requirement especially in slum localities. Funds under
BSUP and IHSDP Programmes could be utilised for the purpose.
- Connecting community toilets to sewers.
- Connecting septic tanks to network in phased way.
- Ensuring no blocking of sewer takes place.
- Ensuring re-use of waste water after its primary treatment.
- Moving animal population away from inhabited areas in a phased manner.
(iii) Long Term Strategy
- Providing sewer connection to 100% HHs by 2041.

- Recycling of all liquid waste for non drinking purpose.
- Ensuring non mixing of sewerage and storm water
- Ensuring storm water drains are unlittered and year round functional.
(iv) PPP
- Innovative community toilets must be explored/ constructed after pilot testing, and by involving
private sector in its construction.
- Innovative management should be practiced to attract investment into sewerage projects

(incentives).
- Compost/ manure, as commercial output from STPs may be used for ULB incomes (through
contractual arrangements)
- Effluents, if discharged into water bodies or elsewhere used, must conform to environmental
guidelines as prescribed by TNPCB for safety.
- All private commercial/ industrial units will install and recycle their waste water independent of
the sewerage system.
(v) Identified Projects

- Capital assets are required to provide a sewerage system with safe disposal facilities for the
entire population existing in 2021, 2031 and 2041.
- Mapping and GIS, topography surveys.
- Designing sewerage network as decentralized STPs for specified population till 2021 and further
for every 5 year increments of population growth.
- Constructing the STPs.
- Connecting community toilets, septic tanks to the sewerage network.
Table 9.2: Underground Drainage (Sewerage) Projects ; Prioritisation and Time Frame
1 Topography Surveys, Mapping & GIS.
2 Design of new sewerage network for decentralised
STPs for existing town
3 Construction of Sewer system with STPs
4 Connecting Community Toilets / Septic tanks to sewers
9.3.3 Storm Water Drainage
(i) Objective
To ensure that the town is protected from flooding, and that the drainage network performs efficiently.
(ii) Identified Projects
- All roads should be properly designed with drains on both sides of the road. All drains should be
engineered to perform year round (dry weather/ heavy rains) drainage.
- All water bodies are rejuvenated and no untreated sewage/ sullage be discharged with them.
- Alternate methods may be used for lining of drains.
- Rain harvesting structure (roof tops/ paved/ unpaved areas/ arresting run-offs and infiltering
water into ground/ storing water under controlled conditions; these may all be introduced as
practices.
Table 9.3: Storm Water Drainage Projects : Prioritisation and Time Frame
1 Construction of drains along all primary roads
(both sides)
2 Adopting alternative lining methods for
secondary drains (pilot projects)
3 Development of Water harvesting structures
4 Treatment of waste water before discharge into
water bodies
9.3.4 Sanitation
(i) Projects

- Constructing New Community toilets at specified standards for the entire existing and projected
population (till 2012)
- Upgrading existing community toilets.
- Creating a framework for their planning/ designing, executing and management.
- Constructing ‘pay and use’ toilets near large commuter flow areas (bus stand/ market/ pilgrim
places).
Table 9.4 : Sanitation Projects : Prioritisation and Time Frame

1 Construction of new community toilets for slum dwellers
2 Upgrading existing toilets
3 Devising framework for planning / Design /
Construction / Management / Financing New
Community Toilets
4 Constructing Pay & Use toilets at busy locations
9.3.5 Traffic and Transportation
(i) Objective:
To achieve efficient transport network and improve traffic management in city and its peri-urban
areas.
(ii) Short Term Strategy:
- Improve access to core area through core city improvement;

- Improve access to peri-urban areas by introducing land use conversions, developing organised
commercial market and avoid haphazard sprawl by integrating land use and transport.
- Remove all road encroachments highway as well as internal roads as a pre requisite to road
improvement.
- Organize parking lots with demarcated pitching spaces and ensuring definite number of car
spaces.
- Provide street lights, signage, road markings on roads and intersections.
- Widen roads in core area to house entry level with demarcated foot paths on both sides.
- Pave all roads in slum clusters; provide drains to engineering designs.
- Fix road levels permanently and adopt re-carpeting in a way as not to change levels affecting
drainage and other parameters.
- Traffic regulation and scientific guidelines should be adopted from IRC standards.
- A proper Transport Development Plan be prepared.

- A registration base for vehicle be prepared for future demand management.
- Green policies be implemented to permit cycles/ rickshaw/ pedestrians to operate in safe road
environments.
- Drains be well designed for peak summer flow as well as monsoon discharge, along with
effective monitoring of storm water drainage system.
- For lining of storm water drains, use environment friendly materials.
- Policies and strategies be prepared as Special provisions for enhancing economic opportunities,
for developing designated commercial zones.
- Improve all main arteries, Bus stands, develop a new Bus stand which will form part of Transport
Development Plan, and, several Bus shelters at suitable locations.
(iv) PPP
- Overhead signage on major roads and highways to be erected to international standards.

- All residential areas be provided with direction/ indication boards along with maps well designed
and executed by reputed art agencies.
- All parks, public buildings, offices be similarly provided with name boards etc as above.
- Advertisement rights to private agencies may be given for the same for a specified period (say 3
years).
- Development of Traffic Management Plan.

- Development footpaths on all main roads
- Provide zebra crossings and other markings
- Provide proper illumination and drainage
- Improve road junctions/ intersections
- Modernize and improve bus stand circulation – parking areas – public conveniences – shops –
- Provide parking in heritage areas; pedestrianize; use bollards and signage’s.
- Provide modern petrol filling stations
- Provide slum areas paving
Table 9.5 : Transportation Projects : Prioritization and Time Frame

1 Traffic Management Plan
2 Developing street junctions /
Sidewalks / Landscape / Road Markings
3 Developing parking lots
4 Siting/ Constructing of new Bus stand
5 Junction / Intersection development
6 Providing Metalled access road to slum and
paving inner slum streets
9.3.6 Urban Poor and Slums
(i) Objectives:
- To provide basic housing to poor with effective roof protection;

- Provide micro-credit for individual toilet construction and connection to septic tank.
- Provide health care and literacy in slums.
(ii) Short Term Strategy:
- Allocating at least 25 percent of the budget in slum improvement measures.

- Deciding and implementing slum housing as either/or in-situ or replanned slum location.
Deciding on housing design, construction methods/ technology, women’s workplaces, cost
cutting frameworks.
- Toilet construction with innovative design - maintenance – management methods.
- HSCs to 100 percent slum housing.
- Incentives to small real estate companies and business models for slum rehousing with ULB
partnership.
(iii) Long Term Strategy:
- Reducing slums to not exceeding 15 percent of the total population.

- Providing transit housing for slum projects.
- Focus on non-formal skills for town building and construction activities for slum dweller
organisation against wage employment.
- Introduction of Vocational training courses for skill development/ enhancement for relevant jobs.
(masons, drivers, carpenters, accountants-book keeping, production on machines/ mechanics,
chefs-cooks-waiters).
- The need for a policy especially tailored to reduce poverty and its impacts in a non-political,
meaningful way is recommended.
(iv) Identified Projects:
- Networking Slum Communities for infrastructure - skills – employment – participation.
- Preparing feasibility reports and DPRs for Pilot projects using IHSDP/ BSUP funds to cover at
least 50% slums.
- Organising community built and managed, eco-toilets for all slum areas.
- Establishing micro-credit societies as well as Feasibility Funds to undertake financially attractive
projects that can attract Bank Finance.
Table 9.6: Urban Poor Projects : Prioritization and Time Frame

1 Preparation of DPR Pilot Project (weaver/other slums)
2 Implementation of DPR
3 Construction of Community toilets
4 Landscaping / Greening Slum area
9.3.7 Solid Waste Management
(i) Objective
To provide a waste management system with safe waste disposal in environmentally sustainable
ways to all residents.
(ii) Short Term Strategy
- Explore partnering neighbouring ULBs for cluster landfill for cost sharing and scale of operation.
- Select suitable options for selection (both primary and secondary points) with simple equipment,
labour intensive and low energy methods.
- Strategise health care and hazardous waste disposal.
- Define collection routes, transit storage of recyclables, safe working conditions, incentives for
innovation and incentives for rationalizing operations.
- Establish monitoring systems for vehicles/ materials/ repair/ maintenance/ landfill.
- Establish composting using windrows method on special site (designated site)/ and regionally
within landfill site with small recycling activities en-route to landfill.
- Dedicate a fund for SWM for its treatment and disposal.
- SWM Plans be prepared for implementation

- Continuous awareness using and selecting an effective medium
- Hazardous waste collection, storage, disposal in scientific way.
- Building bye laws and layout plan to incorporate refuse collection bins to optimise the refuse
collection routes.
(iv) PP Partnership
- Establish possibilities for PPP in the SWM chain.

- Select contracts – tasks – services for private participants.
- Deliver efficient SWM operation process within collaborative mode.
- Ensure that PPP engages in minimizing risks to either party, pays employees regularly, bids
transparently, benefits workers, is non-hazardous and has a stable operation.

- Based on sustainable parameters select site for cluster engineered landfill.
- Adopt innovative arrangements for door-to-door collection and waste segregation at source.
- Purchase equipment or arrange loans for vehicles and equipment.
- Set-up composting plants at a pre-designated site.
- Contracting privately, tipping the waste operation at a pre decided cost per ton basis.

Table 9.7 : SWM Projects ; Prioritisation and Time Frame

1 Selecting and Construction of Land Fill Site on co-
sharing basis
2 Private Contracting of waste tipping
3 Hiring pvt. waste pickers for HH garbage collection
under new arrangement
4 Setting up Composting Plant
5 Purchase of essential equipment
9.3.8 Tourism
(i) Objective
Encourage economic growth in Kayalpattinam by enhancing tourism resources, developing tourism

infrastructure, promoting tourism information and establishing an Institution for Local Initiative in
Heritage Conservation, Regeneration, Urban Design and Natural area Conservation.
(ii) Strategy
Develop a Tourist Zone in Kayalpattinam, devising development partnership with Local development
group/ trust, opening an area planning office (expert views/ consultation/ committees); put on offer
investment opportunities to private sector for projects in leisure, recreation, and water body
improvements, commerce; establishing a Tourist Souvenir shop in well designed buildings etc.
(iii) Major Initiative / Projects
- Accommodation/ Resorts/ Restaurants/ Cafes/ eating places.

- Entertainment and Leisure facilities.
- Transportation facilities.
- Information and Communication facilities.
(iv) Identified Projects (1st Phase 2007- 2012)

- Conservation of built heritage sites
- Conservation of water bodies and heritage if any.
- Tourist Guest Houses and Tourist Information Centres
- Tourism Circuits
Table 9.8 : Tourism Projects ; Prioritisation and Time Frame
1 Conservation of water bodies
2 Construction of Tourist Guest Houses & Information
centres
3 Developing tourist circuits
9.4 Concurrence on Prioritized Projects
It is necessary to involve all town stakeholders in concurring that projects have been conceptualized
and prioritized as per their crucial requirements, have cut across all sectors specified under the
program, entail partnership modes in their implementation and management, and are implementable
in the first few years of the programme.

Successful execution will not only embolden the ULB to accept and asset more challenging projects
amiably and in a conflict free development environment.
After concurrence on the identified projects, the Capital Investment Plans will be prepared.
The Capital Investment Plans for the sectors Road network and Transport projects; water supply,
sewerage storm water drains; solid waste management; slum improvement; Heritage conservation;
Environment and Governance, will cover Project summaries, Cost Estimates, Project Implementation
phasing and Institutional arrangements.
The implementing ULBs will decide the manner in which efficiencies can be achieved in project cost,
implementing and financing as well as in projects development and management through PPP
arrangements.

CHAPTER - 10
CITY INVESTMENT PLAN (CIP)
10.1 Backdrop Study
The long –term vision for Kayalpattinam town has already been set out in the Interim Report of its
CDP. The long-term goals of the community are expected to be driven by fiscal, financial and policy
initiatives of the ULB for making informed investment choices for preparing the city’s Capital
Investment Plan.
A CIP provides the level of investment that will be needed to implement the CDP and is an estimate
and approximation for determining the cost of implementing the stipulated projects under the reform
agenda.
The Capital Investment Plan which is an operational plan to actualize the goals and strategies of the
CDP is a multi year scheduling of the short term [usually 4-6 years] plan for identifying capital projects
and equipment purchase as well as identifying the options for financing the plan. In real terms the
plan provides effective links between the ULB and the various city departments/ other state level
agencies for identifying as well as balancing competing needs and consequently developing
short[and later long] term
capital finance plan. This way the city’s capital investments, both new and O&M, as well as technical
capacity for construction and O&M, through the linked strategic plans spelt out in the CDP, get
reflected in the Municipality’s annual budget.
10.1.1 Benefits of CIP
The Benefits of a CIP are;
1 Potential projects can be systematically evaluated at the same time.

2 Debts can be stabilized and projects consolidated to reduce the costs of borrowing.
3 It can serve as an public relations and economic development tool.
It also ensures the efficient use of public funds for preserving the ULB’s infrastructure whilst
promoting cooperation between the ULB and other public service structures.
10.1.2 Features of CIP
The typical Features of a CIP include;
• A list of capital projects [or equipment] to be purchased.

• A ranking of the projects as prioritized.
• The plan for financing them.
• The timetable for constructing or completing the projects.
• Justification for the projects.
As understood, capital projects are tangible with a life expectancy beyond one year. As the CIP
includes financial issues, it involves reviewing the ULB’s current finances. Subsequent to its
adoption, it is required to take count of a series of tasks, as, inventorying existing capital
assets, evaluating incomplete projects, assessing financial capacity, compiling/ evaluating
new projects, prioritizing them, developing the Financial Plan, adopting the CIP, monitoring /
managing the approved projects, and updating the existing and ongoing Capital Projects.
As part of the preparation of a CIP, it is prudent to consider the prevailing norms/ standards of
infrastructure services, and options for their provision, e.g. high, medium, low or mixed. The agreed

option should match public expectations and the technical capacities of the ULB. Needless to say that
they should be rationally chosen.
10.2 CIP Process for Kayalpattinam
The framework for the long –term vision has already been provided in the CDP in the previous
chapters taking cognizance of the town’s hinterland economy and its potentials favouring port /
marine oriented activities and regional tourism services .This chapter focuses on the Infrastructure
needs and Capital Investment Plan for the following urban sectors
(i) Water Supply;
(ii) Sewerage and Sanitation;
(iii) Storm Water Drainage;
(iv) Solid Waste Management;
(v) Traffic &Transportation;
(vi) Slums &Basic Services for the Urban Poor;
(vii) Others such as Urban Renewal, Urban Governance
Sector wise projects as identified cover the following;

• Project Summary; A description of the projects is made and its requirements assessed
as per Norms in Manuals/ standard reference documents as well as other stated
guidelines
• Cost Estimation of Projects identified; Project costs are assessed on the basis of
PWD Schedule of Rates for Tamil Nadu for Roads & Buildings the Water Supply project
emerged during the consultation process as given in the interim report of the CDP after a
due evaluation of the service levels, growth trends and future needs of the city.
Kayalpattinam needs up-gradation/ improvement of the service apart from meeting the
needs of incremental growth in population. The KM also needs to strengthen its financial
capacity for an effective service delivery.
The prepared list of projects intend to meet the ULB’s goals for efficiency, a prompt service delivery,
strategic growth in house service connections and consequently an increase in its revenue, are
environmentally sustainable, benefit the community, and meet the growing demands and incorporate
the O&M needs.
• Phasing Plan for Project Implementation; The Phasing Plan presents the Project
Implementation Schedule during the period 2009-2014.
• Institutional Arrangements; This presents the Institutions/ULB/ Others responsible for

undertaking projects under the different sectors.
The implementing institutions for projects in Kayalpattinam are the Kayalpattinam Municipality, the
Tamil Nadu Water and Drainage Board (TWAD), the TN Public Works Department (PWD) the TN
Town Planning Department, the TN Tourism Department, the TN Forest & Environment Department,
the TN Fisheries Department
10.3 Water Supply
10.3.1 Overview
The Water Supply project emerged during the consultation process as given in the interim report of
the CDP after a due evaluation of the service levels, growth trends and future needs of the city.
Kayalpattinam needs up gradation/ improvement of the service apart from meeting the needs of
incremental growth in population. The KM also needs to strengthen its financial capacity for an
effective service delivery.

The prepared list of projects intends meeting the ULB’s goals for efficiency, a prompt service delivery,
strategic growth in house service connections and consequently an increase in its revenue, be
environmentally sustainable, benefit the community, and meet the growing demand whilst
incorporating the O&M needs.
10.3.2 Estimates of Costs and Project Phasing
Broad cost estimates proposed are based on the unit costs. Investments are required to be
scheduled through an iterative process, taking into account aspects such as;
Developed areas taking precedence over future development areas;

Considerations for complementary investment for sewerage & sanitation and the linkages
thereof;
Considerations for project size, the duration for implementation;
Linking house service provision with the geographical expansion of the project
10.3.3 Project Summary
The identified projects on preparing their DPRs can be classified under:
1 Production System
2 Storage System
3 Distribution System
4 Monitoring System
Locations of these components need to be put on maps
The Production System
Presently KM is dependant on sub surface water drawn from the river bed of Ponnankurichi
Tamirabarani river under a Combined WS Scheme located at Authoor, about 2 kms.in the adjoining
ULB, where it has its booster station. WS Scheme was executed in 2004. The scheme was designed
for 7.2 MLD with an allocation of 2.2 MLD to KM as treated water.
The city’s gross supply at present is 62 lpcd with only 60% households having HSCs, and a
distribution network reach of only 53% of the road length. Clearly there is need for source creation,
improvement in supply, construction, operation and maintenance of new assets in water supply
system. These would include the following:
Head works
Transporting raw water from surface source/ infiltration well at existing source
Treatment of water
Water pumps
Water transmission main
Booster station at
Feeder mains
Service reservoirs
Distribution system with energy savers
Distribution mains in previous omitted areas
The share of ground water shall be brought down to 75% and surface water utilization to 25% during
the project implementation stage.
(i) Water Treatment plant of 7.33 MLD: Water treatment plant of 7.33 MLD capacity is to be
constructed upstream of the Tamirabarani river to meet 25% of water demand through surface
sources. The intake point and water treatment plant will be located as per the design proposed in the
DPR and cater to the design population in the KM area.

(ii) Proposed Tube wells and Pumps: Tube wells are to be constructed and pumps are to be
installed with design period of 15 years. These tube wells are to be drilled at average distance of
500m spread over the KM area. The locations of the tube wells and their storage tanks shall be to the
designed requirements. These tube wells will also be utilized for online pumping of water in the rising
mains.
The Storage System
The present storage system in the KM area is below stipulated norm of 35% of total supply. The
storage system should support continuous water supply for the city. The locations should ensure that
a water head of 4m. is available at the tail end of the distribution system.
(i) CWR of 1.75ML Capacity: In order to counter the problem of power failure, the design
should propose to store water in CWR of 1.75ML capacity at a specified location shown
in a Map.
(ii) Overhead Reservoirs: OHRs of specified capacity (in LL) will be constructed with the
minimum staging height for improving water head at the tail end of the supply network.
These are to be connected to rising main for water intake and appropriately shown in a
Map.
The Distribution System
The Distribution System comprises of rising main, sub main and primary distribution network. KM has
fair amount of losses which have to be monitored. And new network laid in the non serviced areas of
the town.
The rising mains shall provide for pumping of water to the service reservoir. Details of length and pipe
sizes shall be as per the prepared DPR. The distribution system including laying of pipes for
reorganizing and augmenting piped water supply and coverage of new areas shall follow the DPR
The Monitoring System
This involves monitoring both quantity and quality as well as minimizing losses of water and the
installation of Metering system for Bulk and end user consumption. Essentially these should be done
using energy efficient methods in a regime which ensures water quality which is free of bacteria
/other physico-chemical contaminants. It is suggested that reliance be placed on automated water
generation rather than human intervention. Initial high costs of technology are compensated by
efficient and reliable service delivery.
Cost Estimates of Water Supply Projects
These have been provided in the consolidated CIP at the end of this chapter and are followed by a
phasing plan. Cost estimates follow unit rates derived from the Schedule of rates (SoR) for each
component.
10.4 Sewerage and Sanitation
10.4.1 Overview
KM does not have a Sewerage system. A new one has to be put in place by the TWAD Board. For
doing this it is important to know the general and flood levels in the town as well as the general slope
of the city. The ridge formation too should be known. At present the major modes of disposal are
through individual septic tanks and low cost sanitation through community toilets which are required
to be periodically cleaned by the municipality. The general practice of letting out wastewater into low
lying area or nearby stream is adopted creating insanitation. While designing a new system it is
important to ensure that sewer and water lines do not intercede for avoiding contamination. In no
case should the water line be laid below the sewer line. GIS mapping for utilities is important and
a prerequisite for a well designed system.
10.4.2 UGD Projects

Projects for Sewerage would include;

An Underground Drainage System with provision for
(a) Collection and Disposal network;
(b) Treatment System,
Individual Sanitation System operated by a network of Septic Tanks
Low Cost Sanitation System.
10.4.3 The Underground Drainage System
The Development of Disposal System would incorporate Laying of the Trunk Network of the
desired length of specified size & diameter for coverage of the existing town and future development
area as per the design; Laying of the Sub-Main Sewer Network; Laying of the Lateral Sewer;
Household Connection Sewer as well as construction of Public Toilet complexes to serve slums,
bus stands, shopping centers and other recreational or other public areas.
The Individual sanitation system presently operative in old city areas or the isolated residential and
commercial areas are dependant upon on-site septic tanks or soak pits and will gradually be phased
out to make room for standard UGD system beyond 2014.
Similarly the Low Cost Sanitation system would be phased out to be replaced by the UGD system
beyond 2012. Till then it may be necessary to provide for LCS system of sewage disposal for low
income communities living in degenerated areas, preferring the introduction of eco toilets.
The Operation and Maintenance system would entail procurement of equipment for ensuring an
efficient function and zero blockage through appropriate technology (sewage Lifting Stations, Sewer
Flushing machines, Sewer Jetting machines, CCTVs etc.)
Related aspects of the sewerage system would require that an effective Monitoring arrangement be
instituted by networking of STPs, establishing Testing Labs., automation and computerization
of the system at a Central Control Room. The STP location and setting should ensure nuisance free
environment by proper afforestation. Personnel have to be trained for their new roles, and, people
have to be made aware about adopting the new system.
10.4.4 Cost Estimates of UGD Projects
These have been provided in the consolidated CIP at the end of the chapter followed by Phasing
Plan. Cost estimates follow SoR for each component.
10.5 Storm Water Drainage
10.5.1 Overview
KM is a coastal town with a general topography sloping towards the Gulf of Mannar and with a natural
drainage pattern as expected of nallahs, outfalls into the tributaries of the nearby Tamiraparani River
and the estuaries they form at the river mouth.
On account of violating its natural drainage several wards in the city are flooded during monsoons
making them dysfunctional.The city’s existing drainage partially served by some pucca and katcha
drains along with the non-existence of a sewerage system further exacerbates loading on roadside
drains which receive in addition the sewage and sullage of the city. The open katcha and pucca
drains need to be upgraded and a closed drainage system introduced , besides the construction of
New Drains and desilting the existing ones.
10.5.2 SWD System & Design Considerations

Whilst the Detailed Project Report for Drainage would identify specifics with regard to ward level, area
level and city level design details, the projects for Improvements in the Drainage system would
comprise of
(i) Construction of New Drains,
(ii) Upgrading open & katcha drains to closed drainage system, and
(iii) Desilting blocked drains
Where the topography flattens making difficult the draining of the area, there would be need
for Pumping Stations at pre decided locations after a proper topographic assessment
Trapezoidal sections with cunette at the base for dry weather flow gives hydraulic efficiency
to drains and should be adopted discarding rectangular sections
The Operation and Maintenance of the drainage system by KM staff should assign due
importance to safety and disaster prevention plus environmental hazards by use of a
monitoring system and vigilant handling.
Flood prone wards should integrate their drainage network by remodeling and even
constructing new drains to enhance system efficiency.
It is a preferred option to design a drainage system with outfall into a receptive water
harvesting structure for enabling ground water recharge.
Building bye laws/ rules be made mandatory for Rain Water Harvesting.
10.5.3 Cost Estimates of Storm Water Projects
These have been provided in the consolidated CIP at the end of the chapter followed by Phasing
Plan. Cost estimates follow SoR for each component.
10.6 Solid Waste Management
10.6.1 Overview
The projects in solid waste management were identified considering the diverse aspects of waste
management and prioritizing based on level of services, city growth, and possible options in solid
waste management.
Presently 75% of the 12 MT waste produced in KM is disposed is primitively handled by disposal on

road sides within the town. The earmarked site of 5 acres appears insufficient in the long run.
10.6.2 SWM System
The SWM Collection system comprises of
1. Primary collection system

The system of primary collection followed is cleaning, sweeping and collection of MSW by handcarts.
In future it is proposed to be dustbin free city except in the commercial areas. This is possible by
means of having a systematic door to door collection.
Pilot Project for Ragpickers: A pilot project for primary collection of waste (door to door) will act as
towards employment generation for the urban poor whilst serving a important city level function.
Three wards geographically representing the different areas of the KM shall be selected for the
purpose of the pilot projects.
2. Secondary collection system

The secondary collection comprises of collection bins of 4.5 MT are required to be placed at
conveniently placed for efficiency and covers the entire municipal area.
3. Development of Transportation System

For primary collection of waste energy efficient transports such as handcarts designed for selected
load and convenient loading shall be used whilst vehicular transport - trucks/tractors for collecting
waste from secondary collection points to disposal sites.
4. Development of Disposal System

The disposal systems need to take into account longer perspective and designed for atleast 30 years.
Thereby, requiring a larger site effectively afforested (for nuisance free environment) and integrating
on site screening, composting and recycling activities as well as sanitary landfill with arrangements of
safe handling of hazardous wastes. Alternatively scientific landfill at cluster level is an option
exercised only through concurrence and discussion by other ULBs. For the former proposal a site of
23 -25 acres is sufficient.
Miscellaneous Works/Activities: Organizing waste workers and citizens into action in the activity a
series of capacity building and public awareness campaigns will be necessary. PPP, SHGs and other
appropriate mechanisms can be used to advantage as per the State Policy.
10.6.1 Cost estimates of projects

The various projects for solid waste management include waste collection, transportation, disposal
and monitoring facility. These have been provided in the consolidated CIP at the end of the chapter
followed by Phasing Plan. Cost estimates follow SoR for each component.
10.7 Traffic &Transportation
10.7.1 Overview
Roads form the main component of transportation system of any towns along with public transport
system, parking, signage, bus stop / shelters, etc. They are like arteries of any settlements having
economics and society heavily depended on them. It has been observed that with the growth of urban
areas many of the larger cities starts facing the problem of traffic congestions, jams, larger travel time
encroachments, traffic mismanagement, erupting the day to day life of urban people. On the similar
track, one day, smaller urban settlements will also move, where, if the problems are not resolved at
this stage, can amplify and lead to unplanned growth.
During our visit to Kayalpattinam Municipality it was observed that the roads were in poor condition,
the down town streets were very narrow and it was difficult for a single four to pass through them.
During the consultation process the main points emerged were, the entire transportation system of
Kayalpattinam Municipality need to be up-graded especially focusing on widening of roads, removal
of encroachments, parking and construction of new roads for better linkages.
Generally the projects under this section can be divided into two groups (i) short-term improvement
measures and (iii) long term improvement measures. Short term improvement measures are
regulatory measures and immediate remedial measures on low investment cost. These include
converting roads with two-way traffic to one-way traffic; restricting entry of goods vehicles in core area
etc. The long-term measures involve construction of bridges, flyovers and new roads respectively.
10.7.1 Interim Measures

The short-term measures should be taken up as an immediate priority and attempted within a 1-3
year framework they are likely to give results with immediate effect for a low investment proposed.
These involve civil works of minor nature or simple rearrangements for better efficiency. These are:
1. Preparation of Traffic Management Plan
Current and anticipated traffic of both regional and local level impacting KM would require to be
assessed and a Plan prepared for project to be taken up un the short and long term.
2. Improvement of Traffic Corridors
KM has two main corridors where bulk of region and local traffic concentrate, and which qualifies
them for improvement. The entire road lengths would need widening for easing core area congestion.
Detailed surveys would yield the desired lengths and Right of Ways of the selected roads which have
been estimated here. Other roads which need to be remodelled or upgraded to desired service levels
have been considered here.
3. Intersection Improvements
Intersection improvement is an essential task to be undertaken in order to regulate traffic and

smoother movement of vehicles. In KM 2 major intersections are to be redesigned and 2 minor ones
to be examined for their efficiency. This would include signalization, if required and justified.
4. Removal of Encroachments and Provision of Sidewalks
The commercial encroachments on roads and sidewalks as well other encroachments such as
squatter and garbage dumps are common phenomenon in urban settlement in the Municipal area.
These encroachments are extension of built-up properties; parking of vehicles of shopkeepers/
customers and informal vegetable and cloth market on major roads. The carriage ways have to be
kept free and sidewalks restored for pedestrian movement and traffic efficiency.
5. On Street & Off Street Parking

All unauthorized on-street parking to be banned and designated locations (identified by demand
levels and feasibility) to be auctioned for private operation. The off street parking is one of the
important projects for the town. Around 30% of the roads are encroached with the on street parking of
private and commercial vehicles (Tempo, Taxi, Auto Rickshaw etc).
6. Provision of appropriate street / traffic infrastructure (Street furniture, signage’s, hoardings,

etc): Street furniture, signage, hoardings etc. also forms the part of short term improvement
measures. These components add quality to the overall traffic management system.
7. Other Short Term Improvement Measures: The other measure for traffic improvement involves
Training of Traffic Police on Traffic Management; Public Awareness and Traffic Enforcement Drives
and Registration of vehicles.
8. O & M of Projects 2 to 6.
10.7.2 Long Term Measures

All medium term solutions are to be implemented in a 5-10 year time horizon. These will involve some
investment (high or average). These will require some redesigning, civil construction works,
organizational changes, etc.
1. Construction of New Road

The per capita road length is 1.46mt as against the standard of 1.75mt and will keep on increasing
with increase in population. The need is to identify part of the municipal area needs proper
connectivity. This can be done when DPR of roads is prepared.
2. Introduction of a Formal Public Transport (bus) System

This requires development of bus stands and public/private operators to facilitate town level as well
as regional transportation.
3. Other Improvement Measures

The other measure for traffic improvement involves Installation of CCTV, Speed Radar, and Video
Camera for traffic management.
Apart from the above three the other project which can be taken under consideration in Traffic and
Transportation section are construction of the flyover, construction of pedestrian over bridge,
widening of regional roads/by-pass roads, utilization of water transport system etc. At present in
Kaylpattinam these projects are not required till next 15 years, thereafter if the need will arise these
can be taken into consideration for improving traffic management.

10.8 Street Lighting
10.8.1 Overview
Street lights form an essential component of the infrastructure and is generally looked in conjunction
with the roads and transportation system of any towns. Provision and maintenance of street lights is a
mandatory function of any ULB. This includes their installations, replacement/ repair, operation and
maintenance. Street lighting is important because it:
• Allows the safe movement of motorists or pedestrians;
• Enhances the amenity of an area
• Acts as a deterrent to crime
Minimum Street light spacing required between successive lampposts is dependent on the road
width, traffic volume and land use on a particular road. Ideally street lights have to be placed at an
interval of 30 m. The spacing between street lights KM has sufficient number of lights with a given
spacing of 29 m, however, the type of lighting requires consideration.
10.8.2 Strategies
In conventional street lighting energy wastage is due to:
• Irregular switching off and switching on
• Over design in selected areas
• Ad hoc installation of lighting systems as load patterns Increase
• Manual switching practices
Road and street lighting is one of the largest single expenditure items for Corporations. As a result, it
is important for Corporations to keep up-to-date with developments in lamp and light fitting
technology. This will allow them to take advantage of opportunities to reduce the cost, energy use
and emissions associated with street lighting, while providing a better service to road users. Savings
measures include:
Use of Solar Lights

Solar lamps (sponsored by business houses/ communities/ other active participants) should be
adopted. Solar panels and Photovoltaic Cells are being marketed with government subsidy, this
should be fully utilized.
These systems should be provided with automatic ON/OFF time switch for dusk to down operation
and overcharge / deep discharge prevention cut-off with LED indicators.
Energy Audits and Energy efficiency opportunities

Energy audits and low energy adoption measures need to be undertaken for reducing energy
expenditure by municipality.
Timers to street lights ensure less wasteful culture.
Replacing inefficient lamps
Reducing the number of lights operating
Reducing operating hours
Replacing inefficient switching equipment
Changing type of energy used
Improving maintenance practices
Improving data management
Automatic lighting controls

Installing a device to automatically switch off one or more fittings should only be considered after
lighting density has been addressed, as lighting power density tends to be cheaper to fix and the
savings generated are more reliable.
Privatization Options
Privatisation in the form of maintenance contract may be explored by the ULB.

10.8.3 Cost Estimates of Project

The various projects under street lights have been provided in the consolidated CIP at the end of the
chapter followed by Phasing Plan. Cost estimates follow SoR for each component.
10.9 Basic Services to the Urban Poor
10.9.1 Overview
KM has nearly 7.5 thousand households. Out of these 3.5 thousand constitute slum households living
in slum areas of wards 1, 12, and 14.In general it is observed that the affordability for a pucca house
is very low with 37% houses having temporary roofs. As such it is prudent to estimate the demand for
housing in two categories,
(i) All slum households in the notified slums which need shelter upgradation plus provision
of basic services, and
(ii) All other households living in temporary non weather proof houses in non slum areas.
10.9.2 Strategies
The policy to deal with poverty is largely recommended through the following strategies:
• facilitating house reconstruction as a permanent structure with regular provision for HSCs
for water supply and sewerage system whenever installed with interim arrangement for
septic tanks(for categoryii)
• in-situ upgradation & rehabilitation in permanent housing with regular provision for HSCs
to water supply and sewerage system whenever installed, and an interim arrangement for
PSPs and Community Toilets as per laid down norms (for category ii)
• making available rental units to new migrants and potential squatters/ slum tenants (@
25% of all slum households) in single room / shared accommodation for short or
extended stay at affordable rental which is reviewed every 2 years for change depending
on the rental market in KM. in properly serviced and well maintained housing areas and
managed through PPP arrangements.
Preparation of a DPR will cover all slum pockets and, all katcha shelter units per ward, and quantum
of housing units needed as rental ones. Action plans maybe phased with the first phase devoted to
detailed surveys quantifying demand, and upgrading 50% of the identified slums/ katcha
nd
houses/rental housing construction, with the 2 phase covering the remainder.
10.8.3 Cost Estimates of Project
• Costs for in-situ upgradation includes paved paths, drainage, street lighting, piped water
supply, individual and community toilets, community facilities for health/
education/recreations. The cost per hectare of Rs1 crore is assumed to be spread over 3
years.
• Costs for 50% reconstruction and 50% in-situ upgradation assumed @ Rs. 3 crore per
hectare spread over 3 years
• Provision of rental units in pre determined sites within new/ existing housing areas/near new
employment nodes for which estimates have been assumed
The above have been reflected in the consolidated CIP at the end of the chapter followed by Phasing
Plan.

10.10 List of Projects for Kayalpattinam under different Sectors
10.10.1 SECTOR: Water Supply
S. No. Project / Initiatives Remarks

1 Streamlining House Service Connections into legalized In - house activity
ones
2 Enhancing water supply infrastructure by source creation, Preparation of DPR
laying of pipes /pumps etc.
3 Enhancing water treatment plant capacity upto 1.5MLD Preparation of DPR
upto 2015
4 Developing water storage(underground &overhead) for Preparation of DPR
present & future population up to 2015
5 Pumping system in new developing adjoining areas for Preparation of DPR
present and future development up to 2015
6 Piping work for present & future development up to 2015 Preparation of DPR
7 Awareness Programs NGO/SHG/In-house
8 O&M In-house
9 Reforms(PPP/ water tax/laws/strategies) State and ULB driven
10.10.2 SECTOR: Sewerage

1 Laying of sewer network for present municipal area Preparation of DPR
including connection of septic tanks, pumping facility
(present density @ 30pph, increased density @ 70pph by
2021)
2 Construction of STP (6 MLD )for 2021 Preparation of DPR
3 O&M In-house
4 Laying of sewer for adjoining future development areas Preparation of DPR
5 Construction of community toilets (seat & bath) complexes Preparation of DPR
10.10.3 SECTOR: Drainage

1 Reconstruction/ Remodeling of 50% pucca drains Preparation of DPR
2 Conversion of katcha to pucca drains Preparation of DPR
3 Construction of new drains Preparation of DPR
4 De silting existing drains In-house
5 O&M In-house
Developing new drainage infrastructure for new adjoining Preparation of DPR
developing areas.
10.10.4 SECTOR: Urban Transport

1 Improvement of major corridors (total length 15 kms.) Preparation of DPR
2 Upgrading, remodeling of all other roads (total length Preparation of DPR
30kms.)
3 Improvement of major & minor junctions/ intersections Preparation of DPR
4 Construction of sidewalks, bus bays and service roads for Preparation of DPR
transport stops ( at least 20 locations)
5 O & M of listed projects In-house
6 Development of parking areas at least on 5 locations Preparation of DPR
7 Construction/ remodeling of bus stand, truck depot, and Preparation of DPR

warehousing
8 Encroachment removal and decongestion measures In-house
9 Public Awareness program on traffic discipline In-house
10 Signage, Road markings, road furniture, provision of Preparation of DPR
automatic signals, Indication boards/ Road and Area
Maps
11 Site development for petrol filling stations In-house/State Town
Planning
12 Adopting scientific guidelines for traffic regulation Based on
Consultancy
10.10.5 SECTOR: Solid Waste Management

1 Equipment for solid waste management for Y2015 Preparation of DPR
2 Sanitary Landfill (landfill development, construction & Preparation of DPR
equipment) for 2031
3 Infrastructure Facilities at solid waste disposal site(roads/ Preparation of DPR
green belt/land development)by 2031
4 Incineration for biomedical waste Preparation of DPR
5 Awareness Campaign and Capacity Building In-house/NGO/SHG
6 O&M In-house
7 Increasing coverage to 100% through a PPP model In-house
8 Developing a Composting plant for 2031 (site Preparation of DPR
development/ construction and equipment purchase)
10.10.6 SECTOR: Heritage and Tourism

1 Conservation of all religious, historic and other note Preparation of DPR
worthy buildings
2 Conservation of Water Bodies and their surroundings, By Consultancy &
especially estuaries Preparation of DPR
3 Development of beach front and a parallel green belt of By Consultancy &
indigenous plantation for 2031 including ornamental Preparation of DPR
Baghs and Playgrounds
4 Development of watch tower at existing light house for By Consultancy
disaster monitoring
5 Conservation of beach and regulation of CRZ Preparation of DPR
6 Development of Picnic spots/ recreation spots and Eco By Consultancy &
Tourist Resorts near estuaries Preparation of DPR
7 Inner city development Preparation of DPR
8 Public sanitation facilities In-house
9 Development of two Micro Business Zones for Handicraft Preparation of DPR
and High Value Marine based businesses
10 Exclusive Tourist road and water transport service. Preparation of DPR
11 Establishing a special cell for Heritage conservation and State and ULB
Inner city Renewal
12 O&M In-house
10.10.8 SECTOR: Basic Services for Urban Poor

1 Preparing DPR for Slum Development Preparation of DPR
2 Provision of housing Preparation of DPR
3 Provision of PSPs @ 1 PSP for 15 households (interim Preparation of DPR

measure)
4 Laying the WS network for present and future In-house
development up to 2015
5 House Service Connections to 100% slum households Preparation of DPR
6 Construction of Community Toilet complexes for present Preparation of DPR
and future population
7 Construction of new drains Preparation of DPR
8 Remodeling/ reconstructing/de-silting katcha drains and Preparation of DPR
converting them to pucca ones
9 Connecting drains to city wide network and improvement Preparation of DPR
works in flood prone wards
10 Widening roads and paths Preparation of DPR
11 Converting katcha roads to pucca ones Preparation of DPR
12 Installing street lights In-house
13 Solid waste management Preparation of DPR
14 Constructing Community services centre In-house
15 Constructing primary school as per standard In-house
16 Constructing community level shopping centre In-house
17 Construction of interim rental units for independent/ In-house
shared stay at select sites near employment nodes
18 Construction of workshop spaces In-house
19 Development of Fishermen Village Preparation of DPR
20 O&M In-house
10.10.9 SECTOR: Disaster Management

1 Preparation of Environmental base maps& Impact Based on Consultancy
Area Diagrams
2 Preparation of Disaster Management Plan Based on Consultancy
3 Installation/ Equipment/Erection/ other accessories- Preparation of DPR
instruments as identified in the DMP
4 Awareness and Implementation of regulations as In-house
identified in the DMP
10.10.10 SECTOR: Environmental Aspects

1 Canalisation of nallahs/ streams Preparation of DPR
2 Construction of Rain Water Harvesting structures Preparation of DPR
within green/ open spaces; harvesting rain water in
buildings; Implementing bye laws for same
3 Sea front Development Preparation of DPR
4 Development of Sewerage system Preparation of DPR
5 Development of Drainage system Preparation of DPR
6 Awareness Programs on Environmental Issues In-house/NGO
Campaigns
7 Shift towards reduction in carbon emissions/ adoption Based on Consultancy
of clean fuel

10.11 Sector wise City Investment Plan

Investment
2009-10 2010-11 2011-12 2012-13 2013-14 2021 2041
till 2011-12
Sector/ Component (Rs. Lakhs) (Rs. Lakhs)
Water supply
Total Investment 855 241 221 174 117 102 189 716
1 Source/ system capacity augmentation 154 61.56 46.17 30.78 15.39 0.00 43.36 141.75
2 Treatment capacity augmentation 183 73.30 73.30 36.65 0.00 0.00 36.13 118.13
3 Distribution network augmentation 109 21.86 21.86 21.86 21.86 21.86 34.13 111.56
4 Elevated Storage capacity augmentation 9 4.67 0.00 4.67 0.00 0.00 7.23 50.93
5 Refurbishment of old Distribution Network - 0.00 0.00 0.00 0.00 0.00 0.00 63.75
6 Metering and Monitoring System 400 79.94 79.94 79.94 79.94 79.94 67.84 229.51
Sewerage
Total Investment 1,782 394.61 394.61 394.61 297.86 297.86 351.48 774.05
1 UGD - Network 1,357 271.47 271.47 271.47 271.47 271.47 267.65 500.00
2 UGD - STPs 290 96.75 96.75 96.75 57.81 189.00
3 UGD - Pumping Machinery 132 26.39 26.39 26.39 26.39 26.39 26.02 85.05
4 Refurbishment of Old Distribution Network
Procurement of sewer maintenance equipment (CCTV,
5 2 2.00
Sewer Jetting Machine, Septic Tank Cleaner et.al)
Roads & Urban Transport
Total Investment 954.78 179.65 186.28 186.28 186.28 186.28 344.16 1,465.00
1 Roads Up-gradation
Bituminous to CC 26.52 6.63 6.63 6.63 6.63 8.43 157.50
Water Bound/Earthen to BT 126.36 25.27 25.27 25.27 25.27 25.27 - 260.00
2 Roads New Formation 636.90 127.38 127.38 127.38 127.38 127.38 270.73 892.50
Imp. Road (Widening, beautification, ROBs, bridges, utility
3 75.00 15.00 15.00 15.00 15.00 15.00 25.00 100.00
shifting etc)

4 Public Transport/ Improvements 25.00 25.00

5 Traffic Management/ Junction Improvements 60.00 12.00 12.00 12.00 12.00 12.00 15.00 30.00
6 Parking 30.00 7.50 7.50 7.50 7.50
Drains
Total Investment 4.13 0.83 0.83 0.83 0.83 0.83 175.50 702.00
1 Drains Upgradation 4.13 0.83 0.83 0.83 0.83 0.83
2 Drains New Formation 175.50 702.00
3 Desilting of Primary Drains
Street Lights
Total Investment 81 40 40
1 Replacement - Tube Lights 11 5.57 5.57
2 New Installation - Tube Lights
3 New Installation - High power Lamps 70 34.93 34.93 24.98 81.67
4 New Installation - High Mast Lamps
Conservancy (SWM) & Sanitation
Total Investment 277.04 192.15 22.20 22.20 30.25 10.25 44.69 271.73
1 New Vehicles (Primary Collection) 3.05 0.61 0.61 0.61 0.61 0.61 0.06 3.11
2 New Vehicles (Secondary and Disposal) 40.00 20.00 20.00 40.00
3 Acquiring New Disposal Site 50.00 50.00
4 Infrastructure at Disposal Site and Composting Plant 89.15 33.38 7.97 7.97 23.78 112.93
19.92 19.92
5 DLDPs & Container Bins 8.34 1.67 1.67 1.67 1.67 1.67 0.86 9.20
6 Research, Training and Awareness 86.50 86.50 20.00 106.50
Urban Poor/ Slums
Total Investment 1,369 274 274 274 274 274
1 Slum Improvement - Rehabilitation/ Housing 812 162.36 162.36 162.36 162.36 162.36
2 Slum Improvement - Infrastructure 507 101.48 101.48 101.48 101.48 101.48
3 Slum Improvement - Land acquisition 50 10.00 10.00 10.00 10.00 10.00
E gov./Land use/ Dev. Planning

Total Investment 51 51
1 E Governance 10 10.0
2 Survey and Mapping(GIS) 39 38.8
2 Capacity Building of ULB Staff 3 2.5
Others
Total Investment 115 40 25 25 25
1 Heritage and Conservation 15 15
2 Street Furniture 25 6 6 6 6
3 Tree Plantation & Gardens
4 Night Shelters/ Travellers Bungalows
5 Fire System
6 Water Body Conservation
7 Others (System Studies etc) 75 19 19 19 19
Grand Total 5,489 1,373 1,165 1,077 931 871 1,105 3,928

CHAPTER - 11
ASSEST MANAGEMENT
PART I- INTRODUCTION TO ASSET MANAGEMENT
11.1 Introduction
Assets by definition include, but are not limited to information in all forms and media, networks,
systems, material, real property, financial resources, employee trust, public confidence and
international reputation which are the tangible or intangible things of the Urban Local Bodies
(ULBs).
These assets of the ULB whether in the form of water distribution networks, sewerage, roads,
buildings, equipments deteriorate over a period of time due to use, climatic and geological
conditions. Certain components of the infrastructure are neglected and proper maintenance/
remedial measures are not undertaken due to lack of adequate funding and appropriate support
technologies.
ULBs are not in a position to take up repair, rehabilitate or reconstruct their assets on their own
in the absence of complete data base, inadequate funds. This leads to a reduction in the asset
value to an extent where excess costs have to be incurred in renewal of the assets and excess
expenditure in creating new ones. The deterioration of the assets also affects the existing
financial situation of the ULBs by ways of reduction in revenues.
For strategic, operational and financial reasons, asset management is becoming an increasingly
important area of decision making for municipal governments. New demands for better service
provision, trends towards decentralized systems of public sector management in emerging
economies, potential synergies and changing roles in the public and private sectors are creating
the need for better management and accountability of municipal resources. A management
information base on assets and their condition which can be regularly updated shall further help
the ULB.
Asset management has many definitions, as per the Federal Highway Administration (FHWA)
definition:
“Asset management is a systematic approach of maintaining, upgrading, and operating physical

assets cost effectively. It combines engineering principles with sound business practices and
economic theory, and it provides tools to facilitate a more organized, logical approach to
decision-making. Thus, asset management provides a framework for handling both short- and
long-range planning”
ULB should prepare an asset management plan, which will include an inventory on the existing
assets, prioritization of maintenance and repairs and help decision-makers in optimising
investment strategies which shall in turn improve the quality of services.
Past successful cases of municipal management indicates that effective use of the asset base
is an important factor contributing to increases in municipal revenues and successful
performance, with the value of fixed assets of a municipality increasing to more than four times
its yearly expenditures (400%).
Asset management planning provides optimal solutions which match assets to programs and
service delivery strategies. All decisions should be made keeping that in mind as part of the
framework for decision making in an organization.
An attempt has been made to provide an inventory of the assets of the municipality in this
chapter.
11.2 Benefits of Asset Management
Some of the benefits associated with developing an asset management plan are:
improved service delivery based on municipal asset use;
effective management of built assets and increase in revenue base;
assistance in decision making for resource allocation and maintenance expenses;
enhance the environment and improve quality of life Improve land valuation (for
example, through relocation of public properties, sale and leases, and improvements
in infrastructure such as better roads) that make land assets attractive for productive
and real estate purposes;
evaluation of the associated risks and impacts, reduction of risks and need of
emergency interventions;
life cycle analysis of investment decisions
11.3 Asset Management Plan Methodology
Futuristic asset management plan is very necessary for strategy development. The process
should integrate current asset supply to match with the asset demand serving the utility for
infrastructure development. The process diagram (figure 8.1) and the steps have been detailed
below:
Level of Service
The current assets are evaluated in terms of their functionality, physical condition,
use, financial performance.
New assets – determine the asset needs for delivering the required level of programs
and services.
Gap analysis – at this level planning will provide a comparison between assets
required to support program/ services and currently available assets or in the process
of acquisition. In this manner the comparison aims to find out the gaps between the
requirements and the capacity, the surplus assets that are not required can be
disposed off, and the requirements to be fulfilled.
Decision Making
Risk assessment: Asses the financial risks and life cycle costs involved in each
alternative considered.
Optimal cost – The option selected should be most economical based on a techno-
economic feasibility analysis done by the asset mangers or responsible officer in
charge.
Implementation
The implementation process includes many decisions as mentioned below:
Maintenance incorporates carrying on routine maintenance, repair and rehabilitation
works.
Renewals and replacements assessment suggests assets which do not meet service
levels and need to be replaced by new assets or revived, refurbished.
Creation of new assets based on the gap analysis to ensure satisfactory service
delivery considering the economics, timing and capital inflows required.
Disposal of asset – surplus and obsolete assets can be disposed to create value
addition to the total asset bank.

Non- asset Solutions are like outsourced services, reduced demand for asset can be
done by
o re-designing the service system to maintain with existing assets;
o employing outsourced equipment and services;
o increasing the usage of existing assets.
Finally the decision process is performed through working out financial plans, and various plans
for acquisition, disposal etc.
Figure 11.1: Asset management plan
Assets
Level of service
New assets Current assets • Asset supply

analysis
• Asset demand
analysis
Inventory & • Gaps
condition
analysis
Decision making
Identification,
evaluation & gap • Risk assessment
analysis • Optimal cost
assessment
Maintenance Renewal Asset creation Disposal
Routine Replacement Capital Disposing non

maintenance investment/ functional, poor Implementation:
repair/ leasing/ programs/
• Organizationa
rehabilitation equipments l approach.
• Financial
strategy
Performance Monitoring, Operation & Maintenance Plan,
Financial Plan, Acquisition Plan, Disposal Plan

11.4 Requirements of Asset Management
There various important aspects for infrastructure assets are

capital database (inventory);
maintenance management, service life prediction;
risk & reliability assessment and
valuation
life cycle costing
To accomplish the above, a varied number of techniques/tools are available which can help in
minimizing the maintenance costs and maximise the value of the assets for the municipality.
Some of the techniques/tools are listed below:
11.4.1 Capital database
Preparation of a capital database shall include data collection, usage of consistent terminology,
a consideration of betterment versus maintenance and integration of Geographical GIS and
other tools which have been further elaborated in the sections below.
11.4.2 Maintenance Management
A) Computerised Maintenance Management comprises of two main components: a

relational database containing the asset data, and a set of add-on analysis and decision-
support modules. There are many software available in the market which can help in this
regard, a brief glimpse of a popular model City Works is given below:
City Works (2005) is a GIS-based solution for operational and maintenance management of
municipal assets and supports functions including asset data management, work order
management, recording inspection and condition data, and report generation. It delivers various
benefits to organizations by delivering information to maintenance engineers and managers1.
Stage 1 : User Interface
1
Manual City Works
Stage 2: Selection of Asset Module

Information provided in the asset module

Asset module gives a detailed inventory of the asset with the following entries so that every
asset is recorded and maintained systematically.
Table 11.1: Information Provided in the Asset Module

S. No Field Description
1 Asset No. A unique number assigned to an asset.
2 Asset Description of the asset.
Description
3 Location Code assigned to a location and its description.
4 Department Code assigned to a department and its description.
5 Asset Different types of assets are grouped together under an
Category asset category. This enables easy management of asset
data and retrieval.
6 Asset Status The current asset status describes which operational
state the asset is in. A code assigned to an asset status
and its description.
Options are:
Active = an asset which is currently in service and on
site
In-active = an asset which is not in service
Disposed = an asset which has been taken out of
service permanently.
Lost = an asset which cannot be accounted for in an
audit, therefore no disposable details.
In-storage = an asset which is currently in service but
not kept on site.
7 Criticality Defines the criticality depending on the usage of the
equipment.
8 Authorised An employee who has been given the rights and
Employee accountabilities for that particular asset.
9 Serial Enter the serial number of the asset which can be
Number obtained from the warranty card or on the asset
nameplate
10 Manufacturer Enter the manufacturer of the asset in this field.
11 Contractor
Warranty Assets which are within the manufacturer warranty
period
Contract Assets which are under service contracts
Warranty Date
Expiry Enter the date of the warranty expiry.
Enter additional notes on the warranty or contract, if
applicable
12 Supplier A supplier is a company which supplies the assets.
13 Purchase Current Value
Calculated field based on a linear depreciation rate.
Current Value = Purchase Price – [{(Today’s Date) –
(Date Acquired)}/ Estimated Life]
14 Date Enter the date when the asset was disposed (if
Disposed applicable)

B) Engineered Management Systems
This assigns a Facility Condition Index (FCI) for an asset based on a number of factors
including the number of defects, physical condition and quality of materials or workmanship.
With these data it is possible to predict the FCI well into the future, given the degradation curve
and the effect of remedial action. FCI can be calculated using the formula mentioned below,
FCI = Deferred Maintenance Cost/ Capital Replacement value, If

FCI is < 0.05 is good
FCI 0.05 – 0.1 is fair
FCI More than 0.1 is poor
C) Condition Assessment Survey
A Condition Assessment Survey (CAS) is a tool which helps in the decision making by
establishing the existing condition of the asset and aids in producing a benchmark between
different types of asset and also for the same asset at different times. CAS is a tool which
records the deficiencies in a system or component, the extent of the defect, as well as the
urgency of the repair work; in some cases the estimated cost of repair is provided, at the time of
inspection, projected, remaining life and future use. This type of systematic inspection is
essential for asset management as it provides data for the "maintenance management",
"service life prediction" and "risk analysis" enabling technologies, mentioned earlier2.
D) Geographical Information Systems with Asset Management
Software tools are used to support the tracking, analysis, and reporting of asset and related
information. Geographic Information System (GIS) integrates the technical information to
geographical information.
This helps in the efficient management of an asset inventory. GIS enables map-based views of
the asset helps in forming a database relationship between the spatial data in the GIS and
details of the assets and the work performed on these assets, extended graphical display and
data analysis functionality.
Asset-related information can be spatially analyzed to help identify trends or to determine

impacts of proposed operations. Analysis results and trends can be displayed on a map to
further assist in the decision making process.
Figure 11.2 High Resolution Imagery Quick Bird
2
Technical Paper on Municipal Infrastructure Investment Planning: Asset management by D.J. Vanier and N.H.
Danylo
Figure 11.3. Use of hand held devices for data entry
Using hand held devices for field data entry is

effective and time saving. The case of City of
Saco, Maine shows that there was a 20% cost
reduction due to usage of hand held devices
for information recoding regarding the
condition and characteristics of sewer, drains,
pavements, pipe size.
Figure 11.4 CityWorks GIS based Asset Management System
An example of application of GIS in India has been given below. Mirzapur Municipality in Uttar
Pradesh is one of the first to use GIS for municipal applications. It started with the purpose of
Property Assessment with the help of the Government of Netherlands and Government of India.
The spatial database has proved useful for many activities and later integrated with the utility
networks. Since its implementation, it had raised the increased the number of property tax
assessments by ten times and tripled its property tax revenue (1995-2000 bases). This was
later expanded to include water supply, street record, street drains, solid waste management
(its distribution network model, vehicle optimization, garbage bin location and staff deployment)
etc. The procedure adopted for the same has been mentioned below3.
3
Ref: www.mirzapur.net
• Existing infrastructure water distribution network, street network etc. is added to GIS and
existing paper records were transformed to layers on GIS map.
• Information on various infrastructure components (such as material, condition etc.) is
collected to represent physical proximity of assets so that strategies can be devised
while considering their management plans.
• Update conditions of recently built and mapped facilities
• Establish the mapped location and condition of the vast bulk of the municipal
infrastructure system.
• Considering the urban infrastructures as a single system with relationships between the
different elements.
Fig 11.5: Map depicting the water supply network
Fig 11.6: Map depicting the water supply network on GIS
E) Global Positioning Systems

(GPS) technology assists in accurate data collection, precise identification of building or service
locations, calculations of areas and lengths, estimation of building height, and more importantly
the easy, clear and unambiguous documentation of physical location of identified defects and
potential problems.
These techniques represent valuable tools for the municipality to minimise their maintenance
costs and maximise the value of their assets. On the whole, the system will help the local body
manage its own assets in terms of location, land use, litigations, encroachments, property
values, revenues and expenditure.

11.4.3 Risk & Reliability Assessment
Condition assessment and risk and reliability analysis varies from the simple to the complex
process and is not a “one-size fits-all” process. Risk & Reliability analysis gives the probability
of an asset to failure. This can be carried out considering the trends in output of the assets, and
life cycle functioning. The Risk assessment considers various alternatives and risk involved in
ownership of an asset. Effective risk management requires as a first step an inventory of each
class of assets, standardized condition assessment, and a method to evaluate the reliability of
these assets and consequences of unsatisfactory performance.
The reliability assessment aids in decision making for whether the existing assets are in
favourable condition to provide desired or increased level of services and their accountability to
the services in future.
11.4.4 Valuation
The various components which need to be considered for valuation are –

present value of the asset;
depreciation in the cost of assets;
costs incurred in the betterment or having a new asset visa-a-vis maintenance of the
existing asset;
documentation for the purpose of audit;
capitalization of carrying costs are incurred in the acquisition, construction or
development activity of an asset;
contributed assets include municipality’s assets contributed by others, including
developer contributed assets, even though these were acquired at no cost to the
municipality;
Betterment (new) vs. maintenance.
11.4.5 Life Cycle Costing
Asset life cycle comprises of different stages – procurement plan, acquisition, operation and
disposal. Life cycle cost assessment gives a holistic cost over these phases so as to integrate
the fragmented costs and give the total expenditure required for the asset’s life cycle and the
components included are:
1. Capital cost – Cost of acquiring an asset. This may also include costs for conducting
feasibility study, tendering etc.
2. Recurrent cost – This includes operating costs for energy, manpower, maintenance,
cleaning, etc.
3. Refurbishment cost – Planned refurbishment or improvement costs, or enhancement
cost which may be a non asset solution leading to reducing capital investment.
4. Disposal cost – It is the cost of disposal and could be significant in some cases like for
example the demolition cost of a building can be greater than its salvage value.
5. Environmental costs – the environmental considerations shall be made while evaluating
the costs of an asset. For example the public transport if not performing as per the
environmental standards they might incur pollution taxes or replaced in parts or as
whole.
The relative significance of capital and recurrent costs as a proportion of total life cycle costs
will depend on the nature of the asset. The cost of operating and maintaining an asset over its
useful life often is greater than its acquisition cost. In such cases the use of full life cycle
costing in evaluating alternatives which are imperative to ensure overall program costs are
recognized and minimized.

A typical life cycle cost assessment is given in the diagram below. Year 1 depicts the capital
cost, the O & M expenses begin from Year 2 and drastically increase at Year n if replacement is
not done and the costs incurred are much more than the disposal costs. Environmental costs
also added to the O & M costs increasing the overall O&M costs.
11.4.6 Contracting Asset Management
One of the most practiced methods of asset management is private sector participation.
Another method is organizing the framework of local bodies to involve asset management by
means of involvement of professionals or dedicated officers as asset managers while keeping
the municipal authorities in the loop. The two approaches have been described
diagrammatically below.
Approach 1 Approach 2

Municipality
Municipality
Asset Manager
/ Executive Physical Asset Management Cell
works
Contract
Physical Works Contract

Professional Asset
Management
Consultant

PART II- ASSET MANAGEMENT IN KAYALPATTINAM
11.5 infrastructure Assets
11.5.1 Water Supply
The municipal water supply assets comprises of head works, treatment plant, transmission
mains, pump rooms, pumping mains, storage tanks, feeder mains, distribution network including
all valves, connections, meters, quarters for watchmen and all related facilities. The head works
and booster station are located 3 km away at Authoor outside Kayalpattinam Municipality’s
limits.
Transmission & Distribution Network
The transmission mains run to a length of 3 km from the Authoor to the town. The total
distribution network length is 17 km. These mains and the entire distribution network is mostly
made of PVC material. Storage facilities are in the form of Ground Level Reservoirs (GLRs) and
OHTs. More than 90% of the house services connections are metered where as only 56% of
the commercial connections are metered.
Table 11.2: Details on Water Supply System

S. No Particulars Description
1 Details of the Reservoirs
(a) Ground Level Reservoirs (GLRs) 1 ( Capacity- 60000 ML)
(b) Overhead Tanks (OHTs) 11 (Capacity -16 lakhs)
2 Details on Service Connections
(a) Domestic / Residential 6190 nos.
(b) Non-Domestic / Commercial 10 nos.
(c) Industrial Nil
(d) Bulk Water Supply Nil
(e) No. of Public Fountains (Stand Posts) Nil
(f) Hand Pumps 127 nos.
Source: Municipality, Kayalpattinam
11.5.2 Sanitation
The town does not have any provision of underground drainage and the people are dependent
on septic tanks and low cost sanitation units. The total number of HHs with septic tanks is
30265. In addition to this, there are 2 public convenience units (free) with a total of 16 seats.
11.5.3 Solid Waste Management
Solid waste management gap analysis shows that for efficient collection and disposal of solid waste there
would be requirement for additional infrastructure and manpower. There about 60 dustbins with a
capacity of 100 kg/bin located in the various parts of the city.
11.5.4 Road & road Infrastructure
Details on the various types of roads are given in the table below. Considering the road density
and other percentage of road length, the present network is highly inadequate for the town.

Table 11.3: Road Network of Kayalpattinam

S. No Particulars Length (km)
1 Concrete 7.257
2 Asphalted / Black Top 15.200
3 WBM 1.560
4 Stone Slab 8.226
5 Gravel 1.560
6 Earthen 1.477
11.5.5 Street Lights
Kayalpattinam being on the coastal belt has a well developed beach. As regards the
composition of lights in the town, though there are a good number of tube lights, there are no
high mast lights. In addition to this there are 269 sodium vapour lights.
Table 11.4: Number of Lights by Type

S. No Particulars Nos.
1 Tube Lights (Fluorescent Lamps) 638
2 Sodium Vapor Lamps 269
3 Mercury Lamps Nil
4 High Mast Lamps 3
11.6 Land, Buildings & Vehicles
Municipality does not maintain any computerized maintenance management system hence
keeping a track and updating of the assets is a problem. The buildings with the municipality can
be classified as remunerative and non-remunerative asset’s the latter are those which are either
acquired or purchased or gifted on which the municipality incurs considerable expenditure for
operation and maintenance.
The remunerative assets include commercial complexes, shops in the bus stand, markets,
slaughter house, pay & use toilets etc. Non-remunerative assets of the municipality include
office buildings, burial ground, compost yard, etc. A summary of these are presented in the
table below.
Table 11.5: Details on Land, Building and Vehicles

S. No Remunerative Assets Nos. Area (sq. m)
1 Bus Stand 1 3200
2 Office Buildings 3 3000
3 Commercial Complexes 1 1200
4 Markets - Local Body - Daily 1 1000
5 Slaughterhouse 1 1000
6 Community Hall 1 1500
11.7 Strategies and Recommendations
Asset management is the tool in decision making and shall help in economising the costs. The
various recommendations under the different components have been detailed below:

Water Supply and Sewerage

Inventory of all the components of water supply and sewerage (length, condition, age,
no. of valves, maintenance history, condition ratings etc.)
Mapping the network on to GIS. It provides the graphical interface to view asset data
directly, w.r.t its location and corresponding asset related information.
Validating the information by ground survey using GPS etc.
This information should also be linked to the existing land use so as to facilitate the
maintenance and repair in a manner without interrupting the neighbourhood regular
activities.
Solid Waste Management

Inventory on collection points, transfer station, equipments and schedules and
integrating it with GIS.
Assessment of equipments based on the level of service and customer satisfaction.
Assessment of shortest route to disposal site covering all collection points to economise
on the costs, assessing the maximum trips possible and procurement of vehicles
accordingly.
Continuous monitoring is effective in improving the management of assets and level of
services.
Street Lights
Inventory of the streetlights and assigning each of them a code, the code depicting
various attributes such as manufacturer’s name, year of purchase, warranty etc.
This should be then mapped on GIS as layers which shall help in overall maintenance
and replacement of the street lights on a priority basis and assessment of the cost of
shifting to solar lamps in the longer run.
Involving the resident welfare association in the maintenance and replacement charges.
Franchising lighting and street furniture maintenance to private companies.
Roads
Assign a link number to each road and attributes to every link and prepare digitized GIS
maps.
The attributes which shall be depicted as different layers would include age, material,
construction period, etc.
Life cycle management plan - This section of road asset management plan identifies the
process required to effectively manage, maintain, renew and upgrade the road assets. It
also highlights the expected future expenditure required to effectively manage the road
assets. Past maintenance records and expenditure is required for life cycle
management.
Roads can further be rated in the ArcGIS database map on various factors such as tear
and shear, cracking, potholes, and tendency to degrade within two years or specified
time frame and preparing a logical and capacity supported strategic plan. This can also
help in the financial analysis of the roads which require repair or replacement on priority
basis. This shall also include the evaluating the cost options and preferred life span of
the road, and considerations overlapping with future investments for widening or new
projects like diversions, grade separators while making the allotments.
Land and Building Assets

A detailed inventory of the assets (lands and buildings) and mapping on a GIS map
supported by ground survey.
Each plot/ building to cover various attributes such as number of floors, use, age,
maintenance charges, rent, revenue generated etc.
Plotting and marking of vacant lands for the purpose of acquisition and creation of new
assets for public purpose. Involvement of the community or private sector can be
considered in this regard.
Dilapidated and overburdening building assets should be leased out if the market value
of the structure is anticipated to go down. The economic life of the assets is an important
factor in this respect; when the land value is high and the asset becomes expensive to
maintain it is better to retain the ownership of the land and opt for PPP options to
continue the services.
An ideal inventory for asset management is provided in the Part IV. Case Studies of best
practices by ULBs which have successfully implemented Asset Management have been
enclosed in Part III.
A separate study is necessary for the purpose of preparing a detailed inventory of land and
infrastructure and land assets to minimise their maintenance costs and maximise the value of
their assets. Creation of maps for all assets will help cross check and update the necessary
information using GIS and GPS systems.

PART III- CASE STUDIES
Case – I
Solid Waste Management, Park Development and Maintenance, Ahmedabad Municipal

Corporation
The solid waste management in Bodakdev area of western Ahmedabad was a huge burden on
Bodakdev Nagar Panchayat with 8- 10 tons of waste being generated entailing an expenditure
of Rs. 40,000- 50,000 for collection and disposal. The privatization and PPP model being
adopted for collection changed with the assets being managed by the local body and a private
organization. The Local Govt. played the role of facilitator along with AUDA and other
stakeholders such as resident associations, and even Gram Panchayats. Together they
collaborated to make the city clean and green.
Another problem in Bokadev was scarce and ill maintained vacant lands. These reserved lands
were encroached upon or became dump yards. This created unhygienic situations at important
junctions and locations of the city. AUDA initiated partnership with private sector for developing
and maintaining the land parcels designated for open space/recreational and park development
as well as traffic islands.
Park development & Maintenance
Strategies Adopted
• In the new zoning plan, a virtual green belt was developed with private sector
participation.
• Up to 5% of all land in the Town Planning Schemes is being earmarked for parks and
open spaces.
• AUDA has identified various pockets of land and traffic islands for development of
parks/gardens.
• Several leading organizations from private sector have been approached to carry out the
development and maintenance of these parks.
• These organizations are required to initially pay a fixed amount to AUDA as token
money based on the area of the plot.
• AUDA carries out the garden development, which has to be maintained by the
organization on yearly contract basis.
• All the maintenance charges including water charges, electricity bills, lighting repairs and
labour wages have to be borne by the private organization.
• In return, the private organizations are entitled to install their booths/stalls and
advertising hoardings at the particular park within the area permitted by AUDA.
• AUDA inspects the maintenance carried out by the private organizations on a regular
basis and the contract is renewed on yearly basis if it is found satisfactory.
Achievements
Finances are generated to carry out works for improving the environmental conditions.
Dilapidated plots are developed and maintained as green spaces of the city.

Case – II
Kodinar Municipality: Public Private Partnership Project – River Cleaning, Check Dam
construction, rain water harvesting.
Situation before the Initiative
• The riverbed of Singoda River, which passes through the center of the city, was used as
a dumping site for the solid waste generated since the past 25 years. This waste formed
almost 10-12’ ft deep layer over a stretch of 700m to 800 m lengths and 150m width.
This comprised of organic decomposed waste and silt.
• It created an unhygienic environment in the heart of the city. During monsoons as the
sufficient depth was not available for the river to carry the rainwater, it would overflow
into the surrounding areas, these led to difficulties in ground water recharge.
• The land abutting the riverbed was beginning to be encroached by shanties.
Strategies & Achievements

• The total cost estimated for the
project was Rs. 60 lakhs, of which
the major cost was of excavating the
garbage up to 10 to 12’ by
excavators that were to be rented.
• A retaining wall was built to support
the edges of the river stretch. The
existing wells on the riverbed were
protected during the excavation
activity and deepened later.
• Three percolation wells have been
constructed to increase the ground
water recharge.
• The encroachments (houses &shops) consisting of 32 families were relocated at the
land reserved for EWS housing and provided with houses/shops till the plinth level &
provided with water connection.
Table 11.6: Details on the Kodinar Project

Function Financing Agency Expenditure
Excavating the Garbage Ambuja Cement Foundation 6 lakhs
Protecting the existing wells Ambuja Cement Foundation 5 lakhs
and building retaining wall
Relocate 32 families and Kodinar Municipality 10 lakhs
provide them with housing
Relocate the shops Kodinar Municipality 10 lakhs
River Deepening Ambuja Cement foundation, 14 lakhs
Bilashwar Sugar Mills co-op
society and Kodinar Municipality
Source: ICMA website

Annexure - I
Minutes of the Multi-Stakeholder Workshop on CDP for Visioning Exercise for Kayalpattinam
Municipality, Tirunelveli Region
A. Agenda of the : Formulation of Consensus on Vision for the Town of Kayalpattinam for
Meeting preparation of CDP and Identification of key areas of concern for
sustainable development of the town.
B. Venue : Municipal Conference Hall, Kayalpattinam Municipality

st
C. Date & Time : 21 September, 2007
D. Workshop : 1. Mr. Sundaram, Executive Officer

Participants
2. Mr. K.K.C.Prabhakara Pandian, Chair Person
3. Mr. R.Anthonysamy, Vice Chair Person
4. Mr. N.Subbiah, Ward No. 11 Councilor,
5. Mr. K.VijayaBalaji, Ward No, 5 Councilor
6. Mr. Annadurai, Ward No. 12 Councilor
7. Mr. S.Vinayakamoorthy, Ward No. 21 Councilor
8. Mr. A. Murugesan, Ward No. 8 Councilor
9. Mr. L. Ramasamy, Secretary, Chamber of Commerce.
10. Mr. K.P.Shanmugam, Citizen
11. Mr. A.Jeevanandham, Citizen
12. Mr. Kaajamokaideen
13. Mr. Sivasubramaniyan, Ward No. 20 Councilor
14. Mr. R. Muthudurai
15. Mr. S.Balasubramaniyan
16. Mr. G.Sudalaimani CPI (M)
17. Mr. Anthony
18. Mr. S.Radhakrishnan
19. Mr. S. Thiraviam
20. Mr. A. Saravanan
21. Mr. V.Adhimoolam
22. Mr. R.Subbiah
23. Mr. K.Selvaraj
24. Mr.S.Chellapa
25. Mr.R. Paramasivan
26. Mr. Murugesan
27. Mr. S. Veyilumuthu
28. Mr. R. Maniraju

29. Mr. Isaki

30. Mr. S. Shek Abdul Khader
31. Dr. Abdul Haneef Professor, Ambai Arts College
32. Mrs.K. Arokiamary
33. Mr. P.Sivanparvathy, Ward No. 2 councilor
34. Mrs. G.Isakiammal, Ward No. 12 councilor
35. Mrs. K. MariamSamla, Ward No. 18 councilor
36. Mrs. Ramalakshmi, Ward No. 14 councilor
37. Mrs. S.Jothikala, Ward No. 4 councilor
38. Mr. K. Umamakeshwaran, Ward No. 10 councilor
39. Mrs. E.Loganayaki, Ward No. 6 councilor
40. Mrs. V. Saraswati, Ward No. 19 councilor
41. Mrs. M.S.D.Rukmani shantha School correspondent
42. Mrs. KasthuriBai Guruvammal, JE, Ambai Municipality
43. Mr. A.K.Gomathi Nayagam, Kalimagal Kalvi Sangam
44. Mrs. K.Prema, Kalimagal Kalvi Sangam
45. Mrs. E.Jeyamani, Dr.Ambedkar Maliar Sangam
46. Mrs. R. Rajeswari
47. Mrs. A. Kasthuri Devi
48. Mrs. P.Kalarani
49. Mr. T.P.Ganeshan
50. Mr. P.Vanaraj
E. IPE Project 1. Dr. Veena Garella, Senior Urban Planner
:
Team
2. Ms. Shilpi Raonka, Project Coordinator
3. Mr. Thomas Findo, Analyst- Municipal Finance
4. Ms. Kanmani.M, Associate Consultant
5. Mrs. Kavitha.P, Associate Consultant
F. Workshop Proceedings
The Multi-Stakeholder Workshop held at Municipal Conference Hall, Kayalpattinam Municipality was
attended by the eminent citizens of the town including elected representatives, Municipality Staff,
Professors, Teachers, Government Officials etc.
The workshop started with the Welcome Address of the Chairperson of the municipality He introduced
IPE team and requested IPE officials to make a presentation before starting the discussions. Giving an
overview of CDP, IPE officials explained in detail the purpose and importance of multi-stakeholders
workshop in preparation of CDP. The workshop proceeded by seeking valuable suggestions for
improving infrastructure facilities, opinions for future development and their proposed approach to
accelerate local economic growth. Participants were also asked to put forward their vision for the town in
30 years perspective.

Following data/ information summarized as below was provided by various town representatives during
the workshop.
1. General
Kayalpattinam Municipality was upgraded to Grade III Municipality in the year 2004. Kayalpattinam has
12.50 sq. kms area under its jurisprudence. It has 18 administrative wards. The estimated present
population of Kayalpattinam is approx. 40 thousands as against 32,664 persons (2001 census).
2. On Going Projects & Their Status

Following DPR have been prepared for the municipality:
• Prepared DPR for water supply scheme.
• Prepared DPR for slum improvement under Integrated Housing Slum Development Programme
Scheme.
3. Suggestions from Citizens & Officials of Kayalpattinam Town
Following sectoral issues came forward during the discussions:
3.1 Water supply

Supply of water to the town is once in three days due to the combined Authoor water supply scheme.
The municipality requires separate water supply scheme for its town
Protected water supply needs to be distributed.
3.2 Under Ground Drainage

Demand for under ground drainage facilities to avoid environmental deterioration and unsanitary
condition.
3.4 Industries
Inadequacy of Industrial Setup.
Lack of Employment opportunities due to the out migration of people.
3.5 Roads
Road network to all important towns and city needs to be improved to promote employment
opportunities.
Roads should be improved in selected wards.
3.6 Recreation
Existing Parks and Playgrounds should be maintained by municipal authorities with special facilities
for women folk.
3.7 Sanitation and Water bodies

Preserve, Restore and Conserve water bodies
Public Sanitation needs to be improved by constructing pay and use toilets.
Municipal Sweepers collect dust in dustbins and in all the commercial centers and same is
transported through municipal SWM vehicles.
Storm water drains should be provided on either side of the roads
3.8 Streetlights

Inadequacy of High mast lamps.
3.9 Social Infrastructure

Demand to renovate Primary Health Center.
Lack of Electric crematorium.
Lack of adequate Shopping Complexes
Inadequate sanitary workers.

Minutes of the Review Committee Meeting on Inception Reports on CDP for Grade III
Municipal Towns in Madurai & Tirunelveli Regions held on 16th October ,2007 at the
Conference Hall of Madurai Corporation.
The Review Committee Meeting on Inception Reports on CDP for Grade III Municipal Towns in
th
Madurai & Tirunelveli Regions was held on 16 October, 2007 at the Conference Hall of Madurai
Corporation, Madurai.
Thiru. Hitesh Kumar Makwana, I.A.S. Joint Commissioner of Municipal Administration (JCMA) chaired the
session. RDMAs of Madurai & Tirunelveli regions, Regional Executive Engineers, Chairpersons and
Executive Officers of Grade-III municipal towns, Overseers, Representatives from DTCP, and
TNUIFSL and IPE professionals attended the Review meeting.
Welcoming the Participants, the JCMA explained the significance of preparation of CDPs for the
municipalities as the Hon’ ble Minister for Local Administration during the Budget speech for the year
2007-08 announced that CDPs would be prepared for all ULBs in a phased manner. Further, the JCMA
explained the key components of CDP including perspective plan, Consultation with stake holders of
development thro’ city opinion forms, regional workshop, Demand Assessment of Infrastructure facilities
for the towns, prioritization of identified projects, 5-years capital invest programmes, funding
mechanisms and a participatory approach in preparation and implementation of CDPs and urban
reforms.
Following this, IPE consultants made a presentation on the Inception report in four parts for the 10 Grade
III municipal Towns (Anayur, Avaniyapuram, Thiruparankundram, Gudalur, Rameswaram and Keelakarai
Grade - III Municipal Towns in Madurai Region and Vikramsingapuram, Ambasamudram, Kayalapattinam
and Thiruthangal in Tirunelveli Region) in as detailed below:
Part-I : Brief On the CDP Initiative

Part-II : City Images for 10 towns
Part III: Data Analysis –ULBs Comparative Picture
Part IV: Future Perspective & Vision
Following the presentation, the participants discussed various issues and sought clarification. The JCMA
and consultants clarified issues. The following are the record note of the discussion during the Review
Meeting:
• Regarding growth of population, the consultants should not project the population of the towns for
the plan period based on the existing trend. The urbanization trend in the region must be taken
into account.
• Stake holders’ meetings should be conducted in each municipality and regional workshop be
conducted at regional level for better participation of the stakeholders. At the regional workshop,
officers from PWD, TWAD, Highway & Rural works should be invited. It would be better to hold
the workshop under District Administration.
• The City opinion form must be collected from a cross-section of the society including NGOs,
residential association, Local Chamber of Commerce and Industry and economically weaker
section of the town.
• Study of Urban Performance Indicators should form part of the study report.
• At each stage the municipal council must be consulted and the Draft Final Report and Final
report must be approved by the Council.
• The employment opportunities, social infrastructure are to be assessed in each town not only for
the present and future population and provision of physical & social infrastructure should be
considered at the specific ULB level to meet the present and future demands.
• The revenue enhancement through new initiatives and also finding the new Remunerative
projects in these ULBs should be explored. The opportunities of optimum utilization of municipal
assets should be examined.

• Capacity building and Institutional Strengthening component for the ULBs need to be critically
considered in the next draft. The present strength of ULB staff and post vacant must be high
lighted in the next report. The three towns namely Anaiyur, Avaniyapuram & Thiruparankundram
report are under JNNURM. The CDPs for the three towns should take into account the proposals
contemplated in the CDP for Madurai City.
• The ULBs should take initiatives to achieve House Service Connections for 75% of the Properties
from the present level.
• The consultant may look into the cash flow statements adopted by TUFIDCO for appraising the
projects for financial evaluation.
• While formulating projects under ULBs, projects for integrated development of the region may
also be also considered.
• CDPs prepared for Grade-III municipalities by consultants, will be posed to multiple agencies for
funding various projects, and not necessarily under UIDSSMT Programme, so one should not
transfer the message to ULBs contribution being limited to 10 per cent only. In reality, the
contribution of ULB may be floating depending upon the scheme and funding agencies.
• With regard to lack of updated maps of the project towns, it was informed that GIS Maps of the
outgrowths of Madurai city like Anaiyur, Avaniyapuram Thirupparankundram has been given to
st
another consultant and that they are expected to start their work from 1 Nov, 2007. The same
would be available through O/o CMA after Nov 2007. For other towns, Local Planning Area
(LPA) maps could be collected from the Office of Local Planning Authorities / Regional offices of
Dept of Town & Country Planning and customised as per the requirement.
• A copy of approved CDP of Madurai was given to the consultant and IPE project team was
requested to take into consideration the proposal of CDP for Anaiyur, Avaniyapuram,
Thirupparankundram towns as they will be accessing funds primarily under JNNURM Programme
of Government of India, being the urban outgrowths of Corporation of Madurai.
• IPE was requested to recheck the authenticity of the infrastructure related data provided by ULBs
based on their past experiences.
• The project team to collect details of the land resources available with ULBs, especially the
unutilized and vacant land.
• Regarding the ULB financial positions, it was stated that the Grade-III municipalities might show
good share of revenue income but, in reality it may not be the case, as better figures enable them
to access the loan 4 times their revenue income.
• IPE project team was asked to include implementation framework, strategies for prioritized
project, institutional strengthening and capacity building measures for ULBs, and urban reforms
in the CDP.
• It was asked to collect data on existing staffing pattern and propose institutional framework in
rd th
light of 73 and 74 Constitutional Amendment Act. With regard to existing staffing pattern in
Grade-III municipalities copy of the past ‘Government Orders’ may be collected for reference.
• It was requested to enhance public participation in preparation of CDPs by holding intensive
Focused Group Discussions with various stakeholder groups in respective project towns.
• Rural/ Ethnic Tourism could be promoted in the towns which has good potential for the same.
• Realistic estimates could be made wherever data gaps exist in the municipalities based on
available urban standards.
• IPE project team was asked to hold a separate meeting with TNUIFSL to identify about the
projects/ proposals in the towns/taluks/ district under consideration and the projects should also
be taken into consideration, while preparation of City Investment Plan.
• The presentation made by IPE on classifications of towns on homogenous geographical
characteristics and asked to continue with matrix method for comparing various urban indicators
across the towns of same homogenous geographical characteristics.
The consultants should restrict the scope of the study as per the TOR. However they are free to
indicate the project for detailed study and preparation of DPR like
i. Improve Transport infrastructure, Core city improvement, main arteries, bus stand, bus
shelters, landscaping etc.

ii. Organize public-private land development entities at the town level which will operate as real
estate units for implementing development & renewal with participation of Local community
and private enterprise.
iii. Develop a system of Industrial Areas limited to medium size, clean and safe manufactures
iv. Develop Green areas, large and small as well as linear parks interconnecting neighborhoods
along selected streets, Community spaces which serve as focus of Residential areas.
v. Enhance Cultural / Heritage areas and promote tourism Develop on unique natural heritage
advantages.
The JCMA requested the DD Town & Country Planning, RDMAs and Executive Officers of the
municipalities to cooperate with the consultants in providing maps, data particularly the land and building
register and list of land and buildings owned by the local bodies and organising the consultative meetings
to make the CDP reports pragmatic and realistic.
The meeting was concluded thanking the participants for active participation.
The presentation made by IPE project team was appreciated. The inception report presented by the
Consultant is accepted with above remarks.
Sd./-
Hitesh Kumar Makwana, I.A.S.,
Joint Commissioner of Administration

Annexure – II
Contents of An Ideal Citizens Charter
Aims of the Charter
(i) To render expeditious and Quality service.

(ii) Fixing time schedule for rendering Civic Services.
(iii) To improve the transparency and efficiency of administration.
For Efficient Administration Report on the Public Service of the Municipality
Streamlining the local administration for the welfare of the people the municipal council will
adopt the following guidelines for implementing its specified objective of civil services.
(i) Charging for its functions honestly and justify.

(ii) Special attention will be bestowed in executing the works and in performing the
services.
(iii) Maintenance of punctuality and efficiency.
(iv) Improved methods of planning, execution and maintenance in respect of the following
items of essential Public Service:
• Drinking Water
• Public Health-Solid Waste Management.
• Roads.
• Drains and Drainage.
• Street Lighting.
Stipulating time limits for prompt discharge of duties.
In particular
(i) Reply to letters within 15 days

(ii) For various functions, the following time limits are prescribed for disposals of the issues.
Services Provided by Citizen Charter are:
(i) House Service Connection

(ii) Special Requests
(iii) Complaints / Grievances
(iv) Rectification of Defects
(v) Septic Tank Clearance
(vi) Maintenance of Roads and Pavements
(vii) Street Lights
(viii) Licenses under Public Health Act

(ix) Renewal of Licenses
(x) Public Health and Solid Waste Management
(xi) Birth and Death Certificates
(xii) Issue of Certificates In Respect of Cases Already Registered
(xiii) Grant of Building License
(xiv) Permission for Advertisement Boards and Hoarding
(xv) Property Tax
(xvi) Assessment 0f Tax
(xvii) Transfer of Titles
(xviii) General

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City Development Plan

Infrastructure Professionals Enterprise Private Limited (IPE)

INTRODUCTION TO THE CITY DEVELOPMENT PLANNING PROCESS ...........................................1

CITY VISION AND THE REGIONAL CONTEXT ....................................................................................8

TOWN PROFILE .................................................................................................................................29

3.7.3 Future Growth Patterns .................................................................................................34

URBAN INFRASTRUCTURE, ENVIRONMENT & SERVICE DELIVERY ...........................................36

HOUSING, SLUMS AND THE URBAN POOR .....................................................................................57

URBAN GOVERNANCE AND URBAN REFORMS .............................................................................65

MUNICIPAL FINANCE ..........................................................................................................................75

8.3 Revenue Receipts ............................................................................................. 76

DEVELOPMENT OF PERSPECTIVE AND VISION OF THE CITY......................................................84

CITY INVESTMENT PLAN (CIP)...........................................................................................................93

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Fig 11.5 Map depicting the water supply network 118

Table 4.12: Strategies and Time Frame – Storm Water Drainage 47

Table 11.5: Details on Land, Building and Vehicles 122

ABBREVIATIONS AND ACRONYMS

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INTRODUCTION TO THE CITY DEVELOPMENT PLANNING PROCESS

1.2 The JNNURM; its Thrust and Coverage

1.3 The UIDSSMT

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1.4 CDP objectives under UIDSSMT

Fig. 1.1: City Development Plan-Framework

• Strategies, • Infrastructure Gaps

1.5 Essential Features of a CDP

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Table 1.1: Tamil Nadu Urban Population (1961-91)

from non-conforming (inner-city) to `conforming’ (outer-city) areas so as to reduce

1.7 Scope of Work

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1.8 Directorate of Municipal Administration (DMA) –TNUDP-III Project

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CITY VISION AND THE REGIONAL CONTEXT

2.2 The State Context: Inputs

2.2.1 Political – Historic

2.2.2 Urban Growth - Governance

Table 2.1: Urban Population of Tamil Nadu, 1961-2001

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Source: Administrative Atlas- Census of India 2001, Tamil Nadu

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Fig 2.1: Urban Frame, Tamil Nadu

Note: Figure below districts indicates the number of towns.

2.2.3 Location - Geography

The state is defined by Kanyakumari at southern

The state has the highest urbanization level, is

2.2.4 Demography – Economy

Table 2.2: Indices of Human Development and Gender Development

S. No District HDI Value GDI Value

Table 2.3: Reference Districts, Tamil Nadu: Comparative

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Map 4: Physical Map of Tamil Nadu

Table 2.4 : Tamil Nadu Districts – According to the Levels of Poverty

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Code District Code District

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2.2.5 Infrastructure – Industry

2.3 The District Context: Inputs

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Map 7: Taluka Map of Thoothukudi District

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