Coastal community resilience: analysis of resilient elements in 3 districts of Tamil Nadu

State, India
Author(s): Sushma Guleria and J. K. Patterson Edward
Source: Journal of Coastal Conservation , March 2012, Vol. 16, No. 1 (March 2012), pp.
101-110
Published by: Springer

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Coastal Conservation

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J Coast Conserv (2012) 16:101-110
DOI 1 0. 1 007/s 1 1 852-0 11-01 78-8

Coastal community resilience: analysis of resilient elements

in 3 districts of Tamil Nadu State, India
Sushma Guleria • J. K. Patterson Edward

Received: 6 January 201 1 /Revised: 18 November 201 1 / Accepted: 21 November 201 1 /Published online: 2 December 201 1
© Springer Science+Business Media B.V. 201 1

Disaster
Abstract India has a long coastline of about 7,5 1 7 km. with Recovery have been identified which are consid-
ered essential to reduce risk from coastal hazards, accelerate
20% occupying the coastal area. Due to increase in popula-
recovery from disaster events, and adapt to changing con-
tion; people have been exploring the possibility of develop-
mental opportunities in the coastal areas. Tsunami inditions
2004 by the affected community. In this paper, all the eight
was another unexpected natural catastrophe which badly resilience elements have been examined with respect to
affected many South Indian coastal states especially the
vulnerability and capacity assessment in selected Tsunami
state of Tamil Nadu. Coastal communities here are increas- (2004) affected districts in the state of Tamil Nadu, India in
ingly at risk from many chronic and episodic coastal hazards order to identify the extent of resilience.
which threaten the health and stability of coastal ecosystems
and communities. The degradation of the coastal environ- Keywords Coastal risks • Resilience elements •
ment from chronic human-induced actions threaten food Vulnerability and capacity assessment
security, livelihoods, the overall economic development
and well being of coastal communities. Disasters big or
small affecting the coastal communities are reminders that,Introduction
coastal communities are not resilient to normally recurring
hazards. This fact has raised the question of developingIndia has a long coastline of about 7,517 km. with 20%
community resilience since the most effective approach to ccupying the coastal area. Due to increase in population;
reducing the long-term impact of coastal hazards would be people have been exploring the possibility of developmental
to enhance capacities of coastal communities through ini- opportunities in the coastal areas extending from the Bay of
tiatives which are aimed at ensuring a sustainable recovery Bengal, the Indian Ocean and the Arabian Sea, further, in all
in the aftermath of a disaster as well as reducing people's the coastal states, the excessive use of coastal belt for socio-
vulnerability to these disasters. Eight elements of resilience economic reasons is on the rise. The entire East and the West
i.e., Governance, Coastal Resource Management, Land Use coast and the islands of Lakshadweep and Andaman and
and Structural Design, Society and Economy, Risk Knowl- Nicobar face frequent cyclonic conditions which some times
edge, Warning and Evacuation, Emergency Response and cause large scale destruction of life and property. Tsunami in
2004 was another unexpected natural catastrophe to occur
which badly affected many south Indian coastal states espe-
S. Guleria (ISl) cially the state of Tamil Nadu. (Government of Tamil Nadu:
Research Associate, National Institute of Disaster Management,
www.tn.gov.in).
IIPA Campus, IP Estate, Ring Road, ITO,
New Delhi 110002, India Coastal communities around the world, big and small, are
e-mail: sushguleria@gmail.com increasingly at risk from many chronic and episodic coastal
hazards (ADPC 2007) which threaten the health and stabil-
J. K. P. Edward
ity of coastal ecosystems and communities. Currently, an
Suganthi Devadason Marine Research Institute,
44-Beach Road, estimated 23% of the world's population lives within
Tuticorin, Tamil Nadu 628 001, India 100 km of a shoreline and 100 m of sea level. By the year

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 102 S. Guleria, J.K.P. Edward

2030, an estimated
Most developed and 50% of
developing countries the
look at coastal w
in the coastal hazards,
zone (Small
disasters and developmental and
issues in isolation. The N
communities are increasingly
impact of hazards on coastal environment can be estimated by at
hazards as coastal habitats
obtaining information such
about the magnitudes and frequencies
lands etc. are ofbeing destroyed
natural hazards, about different elements at risk including b
uses, including shoreline
population, develo
natural resources, utilities and other infrastructure
mining, and aquaculture. Over
(Heijmans 2001). This type of study on assessment of vul- f
structive fishing practices
nerability, carried are
out holistically, can provide an important ca
resources and guide
changes
to the planning process and toin marin
decisions on resource
function. The allocation at various levels, and can help to raiseof
degradation th public
chronic awareness of risks and such initiatives must
human-induced be aimed at
actions t
lihoods, and the overall
ensuring a sustainable recovery in the aftermath ofecono
a disaster
being of coastal communities.
as well as reducing people's vulnerability to natural disaster M
tion in states (Birkmann 2006).Tamil
like Nadu, A
and Orissa liveThis in relatively
fact has raised the question of developing community den
basic services are
resilience since limited and
the most effective approach to reducing the th
plan and respond
long-term impact toof coastalcoastal
hazards would be to enhancehaza
to their already
capacities vulnerable
of coastal communities through initiatives statu
which
These conditions
are aimed at set the
ensuring a sustainable recovery stage
in the aftermath fo
disasters and reduced time
of a disaster as well as reducing people's vulnerability toand
these c
orating the need for
disasters. Coastal Community Resilienceincreasi
(CCR) is the capac-
(ADPC 2007).ity of a community to adapt to and influence the course of
Whether it is environmental,
a Tsunami,
social, and economic change. CCR aassess-regio
affecting the ment studies can be useful these
coasts, to characterize the resilience
are status pai
communities are
and trendsvulnerable to
at the community level and can identify strengths, un
increasing risk weakness,
and and gapsnot
in resilience capacity, raise awareness and
resilient t
Vulnerability to hazards
broadly assess is expres
community capacity and vulnerability to coast-
of the al hazards and
population anddevelop mitigation
its measures (ADPC 2007).
capacity
the hazard (UN International
The assessment of risk is an important element of coastal Str
[ISDR] 2004). Similarly,
community resilience. Communities mustRisk
identify their ex-is a
vulnerability of a impacts
posure to hazard population
to proactively address emergency to
Risks from coastal hazards
planning, response, and recovery and implement hazard ar
severity of the hazard and
mitigation measures. An important outcome of increasing thei
which are the resilience of coastal communities is
exacerbated by to reduce orsocial
avoid
such as rapiddisasters
urbanization
by reducing hazard risk and vulnerability (ADPC and
ments, poorly2007). engineered const
infrastructure, In all, poverty,
eight elements of resilience have been identified
and ina
tices such as which are considered essential to reduce risk from coastal and
deforestation
roborating the
hazards, need for
accelerate recovery from proper
disaster events, and adapt
capacity a community of
to changing conditions by the affected community. to These plan
hazards makes coastal populatio
are: Governance, Coastal Resource Management, Land Use
and increases and
disaster risk
Structural Design, Society and Economy, Risk Knowl-(Blai
The 1992 Earth Summit in
edge, Warning and Evacuation, Emergency Response and Rio d
new Disaster Recovery
perspectives (ADPC 2007).
about coastal m
role of education in engaging
more sustainable future for the world's coastal areas. In
response to these challenges and international trends, gov-
Study districts and villages
ernments at all levels and non-governmental organizations
are developing policies, strategies and programs to support
As per the Vulnerability Atlas of 2006 prepared by Building
more integrated and effective approaches to coastal man-Materials and Technology Promotion Council (BMTPC), in
agement. To help communities enhance their skills, effective
Tamil Nadu, out of total 30 districts, 1 1 fall under multi-
training and capacity building programmes can be critical hazard
to zone being affected by earthquake (Zone -III) cy-
foster action and change for improving coastal zones. clone (wind velocity on an average of 47 m/s indicating

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Coastal community resilience: analysis of resilient elements 1 03

medium level cyclonic events), floods (1215.0%

tsunami in of its
2004. The following total
villages were selected for
area is flood prone) and landslides
the affecting
study (Fig. 1): a population
of nearly 21,514,396 people (2001 census). Earlier expe-
riences in Tamil Nadu provide an Cuddalore
insight that
District: cyclones,
Devanampattinam, Samiyarpettai
and Pichavaram erosion due to
floods, landslides, earthquake, shoreline
various natural calamities, TsunamiNagapattinam
in 2004,District: Poomphuhar,
growing de- Tarangambadi
andincrease
mand for livelihood and job security Velanganni the physical,
social and economic vulnerability of the coastal
Kanyakumari commu-Melamanakudy
District: Kanyakumari,
nities in Tamil Nadu. and Kolachel
The present study was conducted in 3 coastal districts
(Cuddalore, Nagapattinam and Kanyakumari) of Tamil
Nadu State, which is situated at the south-eastern ex-
tremity of the Indian Peninsula (Government of Tamil Methodology
Nadu:www.tn.gov.in). As per the Vulnerability Atlas of
2006 prepared by Building Materials and Technology Pro- Tamil Nadu is a multi-hazard prone state and incidences of
motion Council (BMTPC), India, in Tamil Nadu, out of total cyclones, storm surges, floods and tsunami might affect in
30 districts, 1 1 fall under multi-hazard zone being affected future, and so it becomes important to be adequately pre-
by earthquake (Zone -III) cyclone (wind velocity on an pared with an integrated approach. Information on commun-
average of 47 m/s indicating medium level cyclonic events), ity's experience of hazard impacts is an important resource
floods (1215.0% of its total area is flood prone) and land- necessary for Risk Assessment study (Blaikie et al. 1994).
slides affecting a population of nearly 21,514,396 people For the study In the three selected districts, existing infor-
(2001 census). For this study, a field visit was conducted in mation to identifying hazards and effects were collected
January 2006 and the districts of Cuddalore, Nagapattinam from Loss estimation reports, Situation Reports, Historical
and Kanyakumari were selected since they faced the maxi- information- Government sources, Media reports and Visit
mum impact in terms of loss of lives and property during to the affected area.

Fig. 1 Map showing location of

study districts

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 104 S. Guleria, J.K.P. Edward

For the collection of

sanitation with respect to solid data
waste management as well as an
through cleanliness of
library sea was poor.
and net browsi
administrativeAs found out, some underlying coastal realities
officers and were thatloc
standing of the people of areas
the the coastal communities were by and large
severely
occurred on outliers
26th Dec,
in terms of social development and 2004.
livelihood op-
hydrological, geological
portunities and
despite decades of fisheries development efforts.
was collected The fish
from production has been stagnating
various in Tamil Nadu rel
ments. It alsowhile pressure on coastal resources has
included been increasing;
field vi
naire even the artisanal
developed for fishery has become increasingly capital-
Hazard Ris
(HRVC) Analysis.
ized and fossil fuel dependent. This makes the fishery sector
Study was very unsustainable. More so, fishing at
conducted communities
theare so- m
ities via use of a questionnaire
cially differentiated where the poor are always at the loosing
bility end and while tsunamis
Assessment are rare; these communities
(PVA) toare gat
selected studyexposed to other coastal phenomena like
villages tidal waves, cyclo-
through
which nes and regular
included groupmonsoon fury etc. again, it was observed
intervie
and key that, investors
informants. and government have
Forbeen targetinggrou
coastal
group was resources disregarding people's livelihoods and security
approximately rang in
(Kent 1994) gross violation
and of the CRZ norms
for focus by radically changing
grou
such as landforms
health and the coastal zone
care, is the country's tail end
disaster p
were discussed
ecosystem andbased
also the final recipient ofon
all terrestriali)
pol- a
persons lution (Fig. mutual
of 2). free depend
pation, Further, all the eight
neutral iii) resilience elements have been ex-
location and
informants amined with respect to vulnerability
included and capacity assess-
discussion
certain valuable information
ment in order to identify the extent of resilience in the studylike
with previousvillages. Analysis of the questionnaire revealed
disasters or the follow-
had
how they ing vulnerability and capacity
regularly copeaspects of the coastal
with
cused on population: representing
people t
and/or categories.
A) Governance: this refers to availability of some critical
facilities like schools, hospitals, roads, bridges, potable
Results water etc. In the field survey it was fond that rules and
regulations with respect to Coastal Regulation Zone
In Kanyakumari District, villages like Kanyakumari and CRZ 1991 of India have been breached in the complete
Kolachel were the worst affected with seawater entering in coastal belt along the study villages. Residential colo-
all coastal villages. All huts near the sea shore were wiped nies, restaurants, small hotels have been constructed on
out, buildings, schools, churches and temples suffered huge the coastal regulation zone in and around Devanampat-
damage. The villagers remained in temporary shelters for tinam village in Cuddalore district. Physical vulnera-
about 1-5 months and resumed fishing only after 4 to bility still persist and pose threat, as the new permanent
10 months. As compared to the Kanyakumari district, the houses and other village structures rebuilt after the
tsunami affected villages of Cuddalore and Nagapattinam Tsunami in 2004 are on the same locations where they
also experience small cyclones very often. There was a were wiped away by the waves and with very close
major cyclone in 1995 and the villages also were struck by proximity to the sea. Communities live near the coast
heavy rains leading to floods in Nov- Dec, 2005. The coastal with most of them having their houses as near as 20 m
villages of Nagapattinam are most vulnerable to high storm to the coast and also most houses are not made of
surges as here the beaches and coastal lands are gently slope concrete which cannot withstand the pressures of
and therefore suffer deeper penetration of seawater. Protec- waves. Road connectivity in most villages is fine, but
tive mangrove cover is considerably declined at an alarming services are poor. There are no large vehicles owned by
rate due to the increase in shrimp farming and other indus- most villagers and without much connectivity of the
trial activities. 80-90% of the coastal population depends on villages to the mainland, community members feel that
fishing as a means of livelihood which itself makes them they cannot protect themselves adequately during
vulnerable during the times when disaster strikes with no emergencies. Most of the villages surveyed were lack-
provision of alternate livelihood sources. Most of the vil- ing proper medical services and have schools providing
lages surveyed were lacking proper medical services and primary education only. Due to Tsunami, there was a

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Coastal community resilience: analysis of resilient elements 1 05

Fig. 2 Map showing

vulnerability of study districts
towards hazards

drinking water shortage as the seawater incursion had (coral reefs, wetlands) protective resources like man-
rendered the groundwater sources saline and contami- groves etc. From the present study, it was visible that a
nated. The water supply has deteriorated after tsunami mangrove belt is present only in Pichavaram village in
due to pollution of ground water and breaking down of Cuddalore District. Other bio-shield protective meas-
water supply pipe lines. There is absolute lack of san- ures were found lacking in most villages. The capacity
itation provision in the villages and the villagers dump analysis study reveals that there are many active groups
the complete domestic wastes directly into the sea functioning in the villages comprising of many youth
which can again create a community health risk. The and minority groups, NGOs, churches, volunteer
sanitation with respect to solid waste management as organizations, etc. whose potential and services can
well as cleanliness issues is poor. Most villages have be tapped by both the State Government and Local
inadequate electricity supply and these villages lack Authorities to implement plans and projects related to
permanent multipurpose evacuation centers which can adoption of conservation practices and for educational
habitat the villagers when their own homes are unsafe campaigns. Knowledge of indigenous groups can be
during emergencies. tapped for preserving forestry and their inputs can be
B) Coastal Resource Management: this area deals with the valuable for watershed, forestry, fishery and other live-
active management of coastal resources which sustains lihood management programs.
environmental services and livelihoods and reduces C) Land Use and Structural Design: effective land use and
risks from coastal hazards like those of protected areas, structural design must complement environmental, eco-
conservation areas, management zones, critical habitat nomic and community goals to reduce risks from

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 106

Fig. 3 Map showing livelihoo

options in the study districts

hazards.
The analysis
making rev
them
lack the
protection
and of den
assistance
minimize the impact
uations. of s
Every
belt is present only
small to in Pic
medi
District. Similarly bio-shi
phenomenon le
found lacking in
sea all village
resources,
not have any
theprotective
fishermen
could act as necessary
status. In thec
situations. followed by f
D) Society
and Economy:
sion of sea t
wa
need for communities
turning t
thous
environmentally
Along sustain
with th
hazards (Fig.fish
3). in
It the
was m
fou
of the communities
lowing are c
tsunam
ing for their
Insustenance
terms of a
to shift occupation
coastal when
village

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Coastal community resilience: analysis of resilient elements 1 07

Fig. 4 Map showing Panchayat

system & local committees

organizational structure in the form of Panchayat

population and
encourages the girls to t
Church; however the impact is moreeducation.
by the church
leadership (Priest). The coastal
E)villages of Cuddalore
Risk Knowledge: this element deals
district have strong Panchayat system which and
leadership is directly
community members a
controlled by the District Collector and
hazard the(tsunami,
areas coastal flood, landslide
villages of Nagapattinam district have strong
at-risk Panchayat
populations, individuals with s
system and Voluntary organizations with a leader and
risk information which can be utilized
community members that form decisions.
the decision
Themaking
study reveals that thoug
authority of the organization (Fig. 4). The
have communities
strong panchayat and local comm
in almost all the study villages participate
they do not actively in much in impart
involve
community gatherings and functions to discuss
capacity various
building initiatives for the vil
common issues of concern and tothe
resolve
studydisputes.
villagesIthave very few yo
was also evident from the study that the coastal
voluntary popu-
organizations established, the
lation gives equal rights to men and women.
number Thehelp
of self fe- groups set-up in e
male populations of coastal communities were found
study villages (Fig. to
5). Also, many Non
be more receptive towards training and capacity (NGOs)
Organizations build- and Communit
ing as well as keen to learn new skills. Also, the coastal
izations (CBO's) have visited the coas

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 108 S. Guleria, J.K.P. Edward

Fig. 5 Map showing

community based organizations
in study districts

impart trainings
F) and
Warningspre
and
impending of receiving
disaster no
situations
ities regardingat-risk populati
preparedness m
has not been through
very settin
successful a
fully trained evacuation
in this field. zon
Hen
not well study,
prepared and accordin
trained
gation ties
measures during
which are Ts
of
respect to were not
knowledge awar
on risk
sponsored informed
aspects of which
public aw
to reduce vulnerability
the to
community h
grammes could
related to have formal bee
a
and can be transmission
addressed through t
tion and in
multi-disciplinary the coastal pr
geting and early
coordinating warning such i
Panchayat found
members, that
otherpr CB
role in cyclones and flood events
facilitating such are inadequate,work.
local

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Coastal community resilience: analysis of resilient elements 1 09

knowledge through observing Conclusion

the weather and sea
water movements and information about upcoming
cyclones through radio warnings
The are
study the
revealsonly
that theearly
9 study villages in the 3 districts
warning signals for caution. The coast
are prone line lacks
to cyclones, floods asa well as tsunami corroborat-
local knowledge Centre which ing
canthe provide them
need for revision of Coastal Zone Regulation Act in
wake of coastal
training and emergency communication hazards crisis
during and strict implementation of the
same. The increase in
times. Further, the coastal villages are never moni- sea level rise and climate change can
tored with respect of their housing, preparedness,
further exacerbate the situation in low lying coastal zones.
The study villages mirrored that periodic storm surges have
evacuation plans and warning systems.
G) Emergency Response: these already
include establishing
increased coastal erosion and damage to human
mechanisms and networks to settlements
respondbecause quickly to
of the removal or damage to natural
coastal disasters and address emergency needs
protective elements at
such as mangroves and dunes.
community level. The study showedAs per that most
the Disaster vil-
Management Act, 2005 (India), ade-
quate attention
lages had basic emergency services like a must
policebe paid towards reducing vulnerabil-
sta-
ities and, in many
tions except for Pichavaram in Cuddalore disasterand
district reduction initiatives, adequate
baseline data
Tarangambadi in Nagapattinam district are not collected,
which lacked leaving evaluators struggling
to findthe
this facility. It was also found from adequate measures
study of success. Alternatively, vulner-
that
ability religious
villagers had a strong faith in their and capacity analysis
institu-can provide good baseline data
tions and these religious centers and guide interventions.
played a crucial As a long-term measure, activities
role
such as building
in post disaster relief and psycho-social people'sAll
support. institution, poverty alleviation
the 3 study villages i.e., Kolachel, Melamanakuddy
programmes, Self-help groups, mangrove plantation and
Developing Village
and Kanyakumari from Kanyakumari district Knowledge
had Centers can be initiated.
about 10-15 temples and mosques. Invulnerabilities
Specific Nagapattinam and resilience factors of the coastal
district, Velanganni had 10-15 communities
temples,must be addressed especially with respect to
Tarangam-
economic benefits,
badi had 0-5 temples and Poompuhar had 5-10 like those
tem-of farmers in the saline zone,
marine
ples whereas in Cuddalore district, fishers, people thriving on forestry resources, and
Devanampattinam
had 10-15 temples, Samiyarpettai and
vulnerable Pichavaram
ethnic communities through adequate awareness
had 0-5 temples each. and sensitization campaign which must highlight the long-
term benefits
H) Disaster Recovery: This aspect refers of implementation
to keeping plans of an integrated coastal
zone management
in place prior to hazard events that plan. To achieve this, the public sector
would accelerate
and concerned
disaster recovery, engage communities in thestakeholders
recovery should be institutionally orga-
nized, adequately staffed
process and minimize negative environmental, and trained for efficient enforce-
social
ment. Targets
and economic impacts for emergency of training
supplies, to build institutional capacity can
rede-
velopment areas and coastal setbacks. The
include central study
and local government officials, local leaders
showed that the community lacks andawareness
communities, NGOs, and, especially members of pop-
in terms
of safety and preparedness measures to be taken at theThe present study empha-
ulations vulnerable to hazards.
sized the need for
time of disasters. The coastal population is hazard
not identification
self as an important
reliant during adverse situationsmeasure
and arefor putting in place effective mitigation strategies
exclusively
dependent on external aid. Also, and mostcommunity
of thebased disaster preparedness activities.
popula-
tion is illiterate. Before the advent of Tsunami in Schemes and projects must be developed for enhancing
2004, the coastal population had never even heardinstitutional capacities to generate better data and more
about the occurrence of such a hazard. Further, vil- accurate long-term prediction and risks related to hazards,
lagers were aware that livelihood trainings can help climate change and coastal erosion. Climate change impacts
them learn new trades and develop business skills andon coastal zone systems are not well understood by the
help tem re-establish after any disaster event. One public or decision makers necessitating the need for promo-
strength the community displayed was their culturetion of awareness building and sensitization about erosion,
of unity as economic inequalities did not create divi-sea level rise, flooding and storm risks. Considering that
sions. This can be tapped and used to form strongmany coastal resources in the study village areas are in
SHG groups to create societies better prepared tohighly stressed conditions, vulnerability is high which could
handle and face any emergency situation. In addition,further lead to un-sustainability. These coastal villages are
younger generation in each village can be encouragedalready experiencing multiple problems like declining eco-
to prepare contingency plan against the natural disas- system (sea grasses, mangroves), low yield fish stocks, fast
ters faced by them. growing populations, human settlements (informal settlers)

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 110 S. Guleria, J.K.P. Edward

and conflict indegradation

use of the and i
coast
among others.ity of communi
Interventions in
propriate areas based
2000). Theon the
need o
present study strategy
in the 3 for tota
coastal d
tinam, and Kanyakumari)
vention, of
prepare
fiirther uplift initiate
and developm
strengthen th
ience and coping
andcapacities
mitigation,
thrw
coastal zone management
ment. Thus,plans
the o
adequately developing
achieving the an ef
target
The purpose ment
of policies
coastal rel
commun
the grammes,
vulnerability of partici
coastal com
risks to which they are expose
tween community developmen
agement References
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