Government of Kerala

Local Self Government Department

Kerala Sustainable Urban

Development Project
(PPTA 4106 – IND)

FINAL REPORT

VOLUME 2 - CITY REPORT

THIRUVANANTHAPURAM

MAY 2005

COPYRIGHT: The concepts and information contained in this document are the property of ADB &
Government of Kerala. Use or copying of this document in whole or in part without the written
permission of either ADB or Government of Kerala constitutes an infringement of copyright.
 TA 4106 –IND: Kerala Sustainable Urban Development Project
Project Preparation

FINAL REPORT

VOLUME 2 – CITY REPORT

THIRUVANANTHAPURAM

Contents
1. BACKGROUND AND SCOPE 1
1.1 Introduction 1
1.2 Project Goal and Objectives 1
1.3 Study Outputs 1
1.4 Scope of the Report 1

2. CITY CONTEXT 2
2.1 Geography and Climate 2
2.2 Population Trends and Urbanization 2
2.3 Economic Development 5
2.3.1 Sectoral Growth 5
2.3.2 Industrial Development 6
2.3.3 Tourism Growth and Potential 7
2.3.4 Growth Trends and Projections 7
3. SOCIO-ECONOMIC PROFILE 8
3.1 Introduction 8
3.2 Household Profile 9
3.2.1 Employment 9
3.2.2 Income and Expenditure 9
3.2.3 Land and Housing 10
3.2.4 Social Capital 10
3.2.5 Health 11
3.2.6 Education 12
3.3 Access to Services 12
3.3.1 Water Supply 12
3.3.2 Sanitation 12
3.3.3 Drainage 13
3.3.4 Solid Waste Disposal 14
3.3.5 Roads, Street Lighting & Access to Public Transport 14
4. POVERTY AND VULNERABILITY 15
4.1 Overview 15
4.1.1 Employment 16
4.1.2 Financial Capital 16
4.1.3 Poverty Alleviation in Thiruvananthapuram 16
5. INSTITUTIONS, MANAGEMENT AND CAPACITY 18
5.1 Decentralization 18
5.2 Service Delivery and Inter-Agency Coordination 18

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5.3 Organization Structure of the Municipal Corporation 20

5.3.1 Deliberative/Executive Wing 20
5.3.2 Administrative Wing 21
5.4 Capacity Building 23

6. MUNICIPAL FINANCE 27
6.1 Municipal Fund 27
6.2 Revenue Account 27
6.2.1 Revenue Receipts 29
6.2.2 Revenue Expenditures 35
6.3 Capital Account 36
6.3.1 Capital Receipts 38
6.3.2 Capital Expenditures 38
6.4 Key Financial Issues 38
6.5 Kerala Water Authority Finance 39
6.5.1 Mandate and Sources of Finance 39
6.5.2 Cost Recovery 40
6.5.3 KWA Financial Performance in Thiruvananthapuram 41
6.5.4 Key KWA Financial Issues 42
7. URBAN PLANNING AND LAND USE MANAGEMENT 44
7.1 Planning Efforts in the Past 44
7.2 Land Use Management 45
7.2.1 Land Use Pattern 45
7.2.2 Development Pattern 47
7.3 Key Issues 49

8. SUB-PROJECT RATIONALE - NEED AND DEMAND 50

8.1 Approach to Sub-Project Component Selection 50
8.1.1 Municipal Corporation Priorities 50
8.1.2 Community Priorities 50
8.2 Sub-Project Objectives and Component Selection Criteria 50

9. URBAN INFRASTRUCTURE SERVICES 51

9.1 Water Supply 51
9.1.1 Existing Status 51
9.1.2 Water Demand 53
9.1.3 Analysis of Existing Situation and Needs 53
9.2 Sanitation and Sewerage 54
9.2.1 Existing Sewerage System 54
9.2.2 Existing Sanitation Situation 57
9.2.3 Service Adequacy, Key Issues and Needs Assessment 58
9.2.4 Project Identification 60
9.3 Stormwater Drainage 63
9.3.1 Existing Situation, Service Adequacy and Key Issues 63
9.3.2 Drainage Component Identification 64
9.4 Solid Waste Management 67
9.4.1 Present Situation Analysis and Key Issues 67
9.4.2 Component Preliminary Design 73

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9.5 Roads and Transportation 76

9.5.1 Overview 76
9.5.2 Existing Roads 78
9.5.3 Urban Travel Demand and Traffic Characteristics 80
9.5.4 Road Safety 85
9.5.5 Existing Street Lighting 86
9.5.6 Existing Access to Public Transport 87
9.5.7 Roads and Transportation Scheme Selection 89
10. THE PROPOSED SUB-PROJECT 91
10.1 Project Purpose 91
10.2 Part A: Urban Infrastructure Improvement 91
10.2.1 Water Supply Component 91
10.2.2 Sewerage and Sanitation Component 91
10.2.3 Urban Drainage Component 93
10.2.4 Solid Waste Management Component 96
10.2.5 Roads and Transportation Component 96
10.3 Part B: Urban Management and Institutional Development 96
10.3.1 State Level Institutional Development 98
10.3.2 Municipal Corporation Institutional Development 98
10.3.3 Municipal Staff Training 99
10.3.4 Poverty Alleviation 99
10.4 Part C: Implementation Assistance 100

11. CITY SUB-PROJECT IMPLEMENTATION 101

11.1 Executing and Implementing Agencies 101
11.1.1 Executing Agency 101
11.1.2 Implementing Agencies 101
11.2 Project Management 102
11.2.1 Project Management Office 102
11.2.2 Project Implementation Units 102
11.2.3 Project Management and Design Consulting Services 102
11.3 Procurement and Disbursement Procedure 105
11.3.1 Procurement of Goods and Works 105
11.3.2 Disbursement Procedures 105
11.4 Procurement Packages and Implementation 106
11.4.1 Procurement Packages 106
11.4.2 Implementation Schedule 106
11.5 Reports, Accounting and Auditing Requirement 107
11.5.1 Reporting Requirement 107
11.5.2 Accounting 107
11.5.3 Auditing 107
11.6 Project Review 107
11.7 Project Performance Monitoring System 108
11.8 Long-Term Sustainability 108

12. COST ESTIMATES AND FINANCING PLAN 109

12.1 Cost Estimates 109
12.2 Financing Plan 110

13. FINANCIAL ANALYSIS 111

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13.1 General 111

13.2 Assumptions Used in Financial Projections 111
13.3 Cost Recovery 113
13.4 Financial Internal Rate of Return 114
13.5 Average Incremental Financial Cost and Subsidy 115
13.6 Beneficiary Affordability 116
13.7 Project Sustainability 117

14. SUB-PROJECT RISKS AND ASSUMPTIONS 118

14.1 Physical Component Risks 118
14.2 Policy Risks 118
14.3 Institutional Risks 118
14.4 Social Risks 119
14.5 Financial Risks 119
14.6 Economic Risks 119

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List of Annexes
Annex A Proposed Procurement Packages
Annex B Sub-Project Implementation Schedule
Annex C Sub-Project Cost Estimates and Financing Plan
Annex D Financial Improvement and Action Plan
Annex E Financial Analysis

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List of Tables
Table 2-1: Trends in District Net Domestic Product 5
Table 2-2: Population Growth and Projections 7
Table 3-1: Distribution of Workers in Thiruvananthapuram 9
Table 5-1: Staffing Pattern of Thiruvananthapuram Municipal Corporation 23
Table 6-1: Revenue Account 28
Table 6-2: Property Tax – Rate Schedule 32
Table 6-3: Property Tax -Demand and Collection (Rs. Million) 32
Table 6-4: Profession Tax -Demand and Collection 33
Table 6-5: Capital Account 37
Table 6-6: KWA Water Tariff Schedule 40
Table 6-7: KWA Sewerage Connection Fee 41
Table 6-8: Water and Sewerage Operations – Income and Expenditure (Rs. Million) 42
Table 7-1: Development Plan (2001) Status 45
Table 7-2: Land Use Pattern (2001) 47
Table 8-1: Thiruvananthapuram Municipal Corporation Priorities 50
Table 8-2: Thiruvananthapuram - Community Municipal Service Priorities 50
Table 9-1: List of Existing Water Treatment Plants -Thiruvananthapuram 51
Table 9-2: Water Supply Design Parameters 53
Table 9-3: Water Supply Demand and Phased Development 53
Table 9-4: Overall Sanitation in MC Area (Census 2001) 57
Table 9-5: Sanitary Conditions in Slums (KUDP 1994) 57
Table 9-6: Pumping Details of Existing Pumping Stations 58
Table 9-7: Zone wise requirements for Sewage Treatment 61
Table 9-8: Thiruvananthapuram City Drainage Network 63
Table 9-9: Agencies Responsible for Thiruvananthapuram City Drainage 64
Table 9-10: Source-Wise Solid Waste Generation in Thiruvananthapuram (2001) 67
Table 9-11: Physical Composition of Wastes Generated in Thiruvananthapuram 68
Table 9-12: Chemical Analysis of Wastes Generated in Thiruvananthapuram 68
Table 9-13: Details of Transfer Stations in Thiruvananthapuram 70
Table 9-14: Details of Hospitals and Other Facilities in Thiruvananthapuram 71
Table 9-15: Preliminary Requirement for Integrated SWM System 75
Table 9-16: Road Network in Thiruvananthapuram City 78
Table 9-17: Classification of Major Roads in Thiruvananthapuram 78
Table 9-18: Speed and Delay Characteristics at Selected Links 79
Table 9-19: Traffic Growth Rate during 2000-04 80
Table 9-20: Peak Hour Traffic Distribution at Selected Locations 82
Table 9-21: Peak-hour Traffic Volume on Selected Road Stretches 82
Table 9-22: Details of Commercial Vehicular Through Traffic 83

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Table 9-23: Peak-hour Turning Traffic at Selected Junctions 84

Table 9-24: Peak On–Street Parking Accumulation 85
Table 9-25: Mid-block Pedestrian Count at Selected Outer City Locations 85
Table 9-26: Details of Road Accidents in Thiruvananthapuram District 86
Table 9-27: Details of Street Lights Availability at Selected Road Sections 87
Table 9-28: Distribution of Household Trips by Public Transport 89
Table 9-29: Proposed Road and Transport Improvement Schemes for Thiruvananthapuram 90
Table 11-1: Proposed Contract Packages - Thiruvananthapuram 106
Table 12-1: Summary of Sub-Project Cost Estimate 109
Table 12-2: City Level Financing Plan (Rs. Million) 110
Table 13-1: Weighted Average Cost of Capital 114
Table 13-2: Summary of Financial Evaluation 115
Table 13-3: Average Incremental Financial Cost 115
Table 13-4: Subsidy Analysis 115
Table 13-5: Household Affordability Analysis 116
Table 13-4: Summary of Projected Financial Position 117

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List of Figures
Figure 2-1 Geographical Location Pg 3
Figure 2-2 Population Density Pg 4
Figure 5-1 Organization Set-up of Thiruvananthapuram Municipal Corporation Pg 26
Figure 7-1 Land Use Pg 46
Figure 7-2 Growth Potentials and Directions Pg 48
Figure 9-1 Kerala Water Supply Project Pg 52
Figure 9-2 Existing Sewerage System in C, D and E Blocks Pg 55
Figure 9-3 Solid Waste Management System Pg 72
Figure 9-4 Commited Transport Projects Pg 81
Figure 10-1 Proposed Sewerage System Pg 92
Figure 10-2 Valiathura STP Site Plan Pg 94
Figure 10-3 Urban Drainage Proposals Pg 95
Figure 10-4 Urban Roads and Transport Proposals Pg 97
Figure 11-1 KSUDP – Proposed Project Management Structure Pg 104

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List of Abbreviations and Acronyms

ADB Asian Development Bank
ADS Area Development Society
BOT Build Operate Transfer
BOO Build Own Operate
BOOT Build Own Operate and Transfer
CBO Community Based Organization
CDS Community Development Society
DFID Department for International Development
DPC District Planning Committee
DWCUA Development of Women and Children in Urban Areas
EIA Environmental Impact Assessment
EDII Entrepreneurship Development Institute of India
GDP Gross Domestic Product
GIS Geographical Information System
GoI Government of India
HRD Human Resources Development
HUDCO Housing and Urban Development Corporation
IEE Initial Environmental Examination
IKM Information Kerala Mission
IMA Indian Medical Association
IMR Infant Mortality Rate
IT Information Technology
JBIC Japan Bank for International Cooperation
KocMC Kochi Municipal Corporation
KolMC Kollam Municipal Corporation
KozMC Kozhikode Municipal Corporation
KSEB Kerala State Electricity Board
KSPCB Kerala State Pollution Control Board
KSRTC Kerala State Road Transport Corporation
KSUDP Kerala Sustainable Urban Development Project
KUDFC Kerala Urban Development Finance Corporation
KUDP Kerala Urban Development Project
KWA Kerala Water Authority
LFS Land Fill Site
Lpcd Litre Per Capita Per Day
LSGD Local Self Government Department
MFI Micro Finance Institutions
MGP Modernizing Government Program
MIS Management Information System
MLD Million Litre Per day
MSL Mean Sea Level
NABARD National Agricultural Bank for Rural Development
NATPAC National Transportation Planning and Research Centre
NGO Non Government Organization
NH National Highways
NHG Neighborhood Group

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NRY Nehru Rojgar Yojna

NSDP National Slum Development Program
O&M Operation and Maintenance
PIU Project Implementation Unit
PMO Project Management Office
PPP Public Private Partnership
PPTA Project Preparation Technical Assistance
PWD Public Works Department
RIS Repayment Information System
SC/ST Schedule Caste and Schedule Tribe
SHG Self Help Groups
SJSRY Swarna Jayanti Shahari Rozgar Yojna
STP Sewage Treatment Plant
SWM Solid Waste Management
TCPO Town and Country Planning Organization
ThMC Thiruvananthapuram Municipal Corporation
TMC Thrissur Municipal Corporation
TRIDA Thiruvananthapuram Development Authority
TUDP Trivandrum Urban Development Project
UFW Unaccounted Water
USEP Urban Self Employment Program
UBSP Urban Services for the Poor
VAMBAY Valmiki Ambedkar Awaz Yojna
WTP Willingness to Pay

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1. BACKGROUND AND SCOPE

1.1 Introduction
The Final Report (FR) is the forth main output from the ADB TA4106-IND for the preparation of a
project to attract loan funding from the Asian Development Bank for improving infrastructure and
municipal service delivery in the five municipal corporations of Kerala. The five cities are
Thiruvananthapuram, Kollam, Kochi, Thrissur, and Kozhikode. The project will include investment in
physical infrastructure at city level and with proposals for capacity building and institutional
strengthening of municipal and state authorities.

An Inception Report was submitted to the State Government and the ADB in April 2004 (revised June
2004), a Mid Term Report (MTR) was prepared and submitted in November 2004 and the Draft Final
Report submitted in February 2005. Throughout the PPTA there has been a high level of participation
from the stakeholders from the Project cities, GoK agencies and the private sector. Baseline socio-
economic surveys were conducted during the second stage of the PPTA which provided community
and business perceptions on municipal services delivery. Topic-specific questionnaires also solicited
specific data from the cities. The design has learnt from ADB experiences in Karnataka, Rajasthan
and Madhya Pradesh and other donor agencies in Kerala. The design has also capitalized on the
GoK’s own initiatives in municipal decentralization and urban management reform.

1.2 Project Goal and Objectives

The project goal is to encourage sustainable economic growth and poverty reduction in urban Kerala.
The objective of the Project is to provide sustainable growth and poverty reduction through the
provision of urban infrastructure services and the promotion of good urban governance to urban local
bodies in Kerala.

1.3 Study Outputs

The outputs from the study are a series of components to improve city wide urban infrastructure services
with the integration of poor settlements within the overall urban development process. Specifically, the
Project will provide (i) basic infrastructure services to increase economic opportunities and to reduce
vulnerability to environmental degradation and urban poverty, and (ii) improve urban governance and
increase capacity of the municipal corporations to undertake urban planning activities. The Project
will also focus on improving the conditions of the poor through undertaking community infrastructure
development and poverty alleviation activities at each municipal corporation.

1.4 Scope of the Report

The FR is presented in 9 volumes. Volume 1, the Main Report, provides an overall view of the project and
concentrates on State level policy, social-economics and urban management plus issues that are common
to all the five project cities. Volume 2 provides separate reports for each individual project city covering
mainly technical and financial issues that are particular to that city. Volumes 3 to 7 provide comprehensive
details on: Social Impacts and Poverty; Economic Analysis; Initial Environmental Examination; Technical
Analysis and, Urban Management and Institutional Development; Volume 8 provides support documents
on social and environmental safeguard frameworks and Volume 9 provides the Project Resettlement Plan.

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2. CITY CONTEXT
2.1 Geography and Climate
Thiruvananthapuram is the capital of Kerala. It is a coastal city situated in 8º 25' North latitude and
76º 55' East longitude. The distance from Thiruvananthapuram to the nearest Metropolitan city,
Chennai, is 780 km. The city is well connected by road, rail and air transport. A city of hills and
valleys, the ground level varies from 0 to 76 m above Mean Sea Level.

Geologically the city is characterized by sandy soil along the west and red laterite soil along the east.
Granite deposits exist in some parts of the city especially at Peroorkada and Thirumala. The area
covered under the Kerala Sustainable Urban Development Project (KSUDP), is the jurisdiction of
Thiruvananthapuram Municipal Corporation, see Figure 2-1.

A fairly uniform temperature characterizes the climate of Thiruvananthapuram with high humidity
throughout the year due to the city’s proximity to the sea. The average annual rainfall in
Thiruvananthapuram is 1,803 mm, which is lower than other parts of State. On average there are 102
rainy days in a year. The hottest months are from March through May with an average maximum
temperature of 31.7º C. The average daily minimum temperature of 22.5oC occurs during December
to January.

2.2 Population Trends and Urbanization

Urbanization and urban population growth are pointers towards the change in the occupational pattern
of the community, from agriculture and allied livelihoods to industrial and other non-agriculture
occupations.

The city witnessed population growths of 45.6%, 70.8% and 42.1% during 1941-51, 1961-71 and
1991-2001, respectively. This growth is attributed mainly to the extension of city boundaries and
merger of adjoining Panchayats with the city.

Thiruvananthapuram city alone accounts for 68% of the urban population in the District.
Thiruvananthapuram Development Authority (TRIDA) area is 296 sq. km encompassing 142 sq. km
Municipal Corporation area and 154 sq. km of adjoining ten gram Panchayats. According to Census
2001, the total population in the TRIDA area was 1,132,000 with 745,000 persons residing in the
Municipal Corporation area.

Accordingly, the average population density in the TRIDA area was 3,800 persons per sq. km. In the
city’s central area and the along the coastal belt, the population density is as high as 5,300 persons per
sq. km with only 2,500 persons per sq. km in the outer fringes of the city. Figure 2-2 indicates the
population density distribution in Thiruvananthapuram.

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2.3 Economic Development

2.3.1 Sectoral Growth

Due to non-availability of city-level data, district-level data was considered for analysis.
Thiruvananthapuram District houses 10% of the State’s population and contributes to 11% of the
State’s income. Sectoral contribution and its changes in Thiruvananthapuram District during the
period 2000-03 were similar to the trend exhibited by the State.

Table 2-1: Trends in District Net Domestic Product

Components 1999-00 2000-01 2001-02 2002-03
NDP (Rs. Million at constant prices)
Primary 6,464 5,004 4,944 4,708
Secondary 6,509 7,441 6,979 7,432
Tertiary 21,870 23,843 26,067 28,652
Total 34,842 36,288 37,990 40,792
Growth NDP (% over preceding
year)
Primary -22.6 -1.2 -4.8
Secondary 14.3 -6.2 6.5
Tertiary 9.0 9.3 9.9
Total 4.2 4.7 7.4
Composition (% of NDP at current
prices)
Primary 18.7% 15.0% 12.6% 11.2%
Secondary 20.2% 21.8% 23.5% 24.4%
Tertiary 61.1% 63.3% 63.9% 64.4%
Total 100.0% 100.0% 100.0% 100.0%
Source: Economic Review 2003, State Planning Board.

Following are specific observations inferred from Table 2-1:

„ The declining trend in the primary sector is substantial;

„ Average annual growth in the secondary sector for the Thiruvananthapuram District (4.5%) is
higher than that for the State (2.8%), while growth trend in the tertiary sector for
Thiruvananthapuram District (9.4%) is marginally lower than that at State level;
„ Performance of total NSDP and per capita income are higher for Thiruvananthapuram District
compared to the State’s corresponding figures;
„ Tertiary sector contribution to the District economy is substantial with 64% income contribution
in 2002-03, attributed to the presence of the service sector in Thiruvananthapuram city; and
„ The share of sectors in the District NDP witnessed the following trend during the assessment
period: decline in primary sector share, stable/constant share for the secondary sector and an
increase in tertiary sector share. The above trend indicates a positive growth by the District and
is line with the structural pattern of a developing economy.

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2.3.2 Industrial Development

In the recent past, the State has made serious efforts to identify new opportunities and equip it to meet
emerging challenges. While traditional industries like handlooms, coir and cashew are in a difficult
phase of development with their inherent problems, the present Industrial Policy and other related
policies of the State are aimed at enhancing investment opportunities in the State, especially in the
industrial sector. Emphasis is on information technology, which has started showing positive signs
through promotion of IT enabled services. A wide range of initiatives by the State on IT includes “E-
Literacy for one member per family” and sophisticated systems development in IIM-Kozhikode.

Industrial Parks and Estates. The industrial infrastructure facilities offered by the State include
industrial parks and industrial estates. About 50 Ha of land was developed under this category in the
TRIDA area of which 25 Ha have been allotted, creating employment for 3,500 persons. Apart from
industrial estates, there are mini industrial estates, which come under the Small Industrial
Development Corporation for provision of infrastructure facilities to the small-scale sector – there are
four mini industrial estates in Thiruvananthapuram District.

There was a marginal growth in working factories within the Thiruvananthapuram District during the
year 2002-2003. The Economic Review, 2003 indicates that:

„ Average annual growth of registered factories and employment in Thiruvananthapuram District

(2.6%) is less than that of the State (4.9%); and
„ The composition of registered industries and employment in Thiruvananthapuram District to that
of State is declining. During the period 1995-2002, the district share of registered factories and
employment in the State was about 5% and 7%, respectively.

Small-scale industrial units registered in Thiruvananthapuram District along with their associated
investment and employment provided have declined in the past few years; a similar trend is witnessed
for the State. Thiruvananthapuram District has 28,918 units, which constitutes 10.69% of the total
small-scale industries in the State.

The Economic Review 2003 report reveals that the average growth of registered small-scale units in
Thiruvananthapuram District is declining compared to that of the State. Employment provided in
Thiruvananthapuram District is also declining (-17.5%) but at a lesser rate than the State (-24.3%).

Traditional handloom products of Kerala are extremely popular for their distinct blend of elegance,
simplicity and excellence in design. This sector employs about 175,000 persons and is the second
largest employer after the coir industry, among the traditional based industries of the State.
Thiruvananthapuram District has 360 handloom cooperative societies, which is 48% of the State’s
total, and this share was relatively constant during the period 2000-03.

Various agencies such as KSIDC, KINFRA, and KFC are involved in industrial promotion by
providing financial and infrastructure assistance to industrial units.

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2.3.3 Tourism Growth and Potential

The Tourism sector plays an important role in local economic development and contributes a
significant share of the State’s economy. The tourism sector is identified as an alternative economic
growth source for the State. Thiruvananthapuram, however, functions mostly as a transit point for
domestic and foreign tourists. There are a large number of tourist locations in the District and tourists
visiting Thiruvananthapuram are attracted more towards leisure tourism including beaches, eco-
tourism and historical monuments. There are 148 classified hotels in Kerala as well as 28,000
unclassified rooms; the 25 classified hotels in Thiruvananthapuram represent 17% of the State total.

Foreign tourists in Thiruvananthapuram District comprise 28% and 32% of the State’s foreign tourist
population in 2002 and 2003, respectively. The corresponding figures for domestic tourist are 14%
and 18%. The number of foreign and domestic tourists in Thiruvananthapuram District has grown
significantly by 45.4% and 11.6%, respectively, in the year 2002-2003. This is twice the State average
indicating the high tourism potential of the District.

2.3.4 Growth Trends and Projections

Assessment of city economic development and urban growth indicates a decadal population growth
rate of 5.7%. The city is expected to grow at the same rate over the next three decades. Table 2-2
indicates the population growth projections for the Thiruvananthapuram municipal corporation area.

Table 2-2: Population Growth and Projections

Year Population
1991 524,000
2001 744,740
2011 788,000
2021 833,000
2031 880,000

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3. SOCIO-ECONOMIC PROFILE
3.1 Introduction
Thiruvananthapuram, the capital of Kerala and administrative centre, witnesses an urban migration
and population growth greater than that of other cities in the State. The spread of the project area is
141.73 sq. km, which covers the Municipal Corporation’s jurisdiction.

The decadal growth rate of the city is 42.12% (Census of India, 2001). In 2001, Thiruvananthapuram
Municipal Corporation (MC) housed a population of 744,739 persons, consisting of 365,000 males
and 378,000 females, with a population density within the city of 5,255 persons per sq. km.

The sex ratio of Thiruvananthapuram city was 1,035 female to 1,000 male in 2001 and this is
comparatively less in relation to the State figure of 1,058 females to 1,000 males.

Under KSUDP, a socio-economic study was conducted to collect data to help determine the demand
for improved basic urban services including urban social services required for poverty alleviation.

Interviews and focus group discussions were organized with city-level stakeholders1 to assess their
perception about the city’s development, through a participatory process, and their willingness and
capacities to be involved in the Project. The survey covered a sample of 1% of the city’s households
for quantitative information, while group discussions, interviews and case studies were conducted for
qualitative information. The study covered poor households, Low Income Groups (LIG), Middle
Income Groups (MIG) and High Income Groups (HIG) categories. The survey sample size in
Thiruvananthapuram was 1,660 households and the population was stratified in the aforesaid groups.

Stratification was carried out on the following basis:

„ To gain insight into the poverty and vulnerability of economically backward groups, the ‘poor’
was divided into Most Vulnerable (MV), Just above Vulnerable (JV) and Upper crest of the Poor
(UP). This classification is purely based on the risk factors identified and used by Kudumbashree
for their poverty eradication programs;
„ LIG is identified in terms of the economic basis, as households with a monthly income less than
Rs.5,000 and who do not come under the poor category as mentioned above;
„ MIG is also identified in terms of the economic basis and are households with a monthly income
greater than Rs.5,000 but below Rs.10,000; and
„ Likewise HIGs are households with a monthly income greater than Rs.10,000.

Considering the risk factors, especially on the economically weaker section, the sample proportion
was distributed among the Poor, LIG, MIG and HIG as 30%, 35%, 30% and 5% of the households,
respectively. Care was taken to include women headed households in the sample.

1
Elected Representatives, Government Representatives/Staff, Women Groups, Resident Welfare Associations, Business Groups,
Merchants/Traders Associations, Business Chambers, etc.

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3.2 Household Profile

The family size of Thiruvananthapuram MC was calculated as 4.4. Among the Just above Vulnerable
and the Upper Crust of the Poor category the family size was 4.8 and 5.2, respectively.

Women headed families are primarily among MV groups and constitute 27.1% of the total families
surveyed. There is a steady increase in the proportion of male-headed families across the city, from
the MV category to the HIG category.

3.2.1 Employment
Unemployment in Kerala has increased as revealed by the high registration in employment exchanges.
The unemployment rate of Kerala is 11.6% in rural areas and 12.2% in urban areas, whereas the
comparative figures for the country as a whole are 2.3% and 5.7%, respectively (Economic Review,
2003).

An employment estimate in Census 2001 indicates that agriculture and allied activities are least
priorities in the employment choice of people. Out of the total employed, 6.8% comprises cultivators,
12.5% comprises agricultural laborers, 6.3% comprises household industries and 74.4% comprises
other professions (such as mining and quarrying, manufacturing other than household industry,
construction, trade and commerce, transport and communication and other services).

Table 3-1: Distribution of Workers in Thiruvananthapuram

Person Total Population Main workers Marginal workers Non-workers
Persons 744,739 29.7% 3.6% 66.7%
Male 365,899 46.0% 5.2% 48.8%
Female 378,840 13.9% 2.1% 84.0%
Source: Census 2001.

Labor and Work Participation. According to Census 2001 there are 10,291,258 workers in the State
and they form 2.6% of India’s total workforce. Out of State’s total workers, 8,236,741 are main
workers, 2,054,517 are marginal workers and 21,547,361 are non-workers. Kerala’s workforce
participation rate is 32.3% (Census 2001).

11% of the households surveyed do not have employment and 45% of the population earn their
livelihood as daily wage earners. Being the capital city of the State, 12% of the people are government
servants.

3.2.2 Income and Expenditure

Monthly Income. The average monthly income of the Most Vulnerable (MV) group is Rs.1,795, the
Just Vulnerable (JV) is Rs.2,305, the Upper crust of the Poor (UP) is Rs.3,275 and Low Income
Group (LIG) of the non poor is Rs.3,825. The members of the MIG category have an average monthly
income of Rs.7,970 and members of the HIG category have an average monthly income of Rs.41,765.

Monthly Expenditure. The average monthly expenditure of the MV is Rs.2,150, JV is Rs.2,590, UP

is Rs.3,220 and the LIG is Rs.3,820. The MIG and HIG categories have an average monthly

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expenditure of Rs.5,515 and Rs.11,455 respectively. The MV and JV spend more than their income,
which is an indication of their indebtedness.

„ The average expenditure on food by the poor is up to Rs.1,360 per month and LIG spend around
Rs.1,545 per month on food. The MIG and HIG category spend between Rs.2,180 to Rs.3,350
per month on food.
„ The respondents spend on an average of Rs.350 per month on medical expenses. The HIG spend
Rs.615 per month on medicines. The poorest people (MV) spend on an average Rs.285 per
month towards health care and depend on government hospitals for free treatment.
„ On an average, the poor spend up to Rs.240 per month on transportation and the LIG, Rs.315 per
month. Respondents in the above two categories depend either on public transport system or use
two-wheelers or bicycles for transportation. The average monthly expenditure in MIG
households is Rs.560 and in HIG households it is Rs.1,720. Both groups do not use public
transport facilities but use their own two-wheelers or cars.
„ Average monthly expenditure by the LIG on children’s education is Rs.585; MIG households
spend Rs.465 per month and HIG households spend Rs.955 per month on children’s education.
The poor sections (the vulnerable groups) spend up to Rs.200 per month on their children’s
education. The poor send their children either to government schools or aided schools where fees
and other expenditures are low. LIG, MIG and HIG send their children to private/unaided
schools.
„ The average expenditure on house rent and repayment of house loan constitutes a monthly
expenditure of Rs.1,215 for all categories. The monthly expenditure on rent and repayment of
loans for housing constitutes a maximum of Rs.620 for the poor, Rs.1,345 for LIG, Rs.1,620 for
MIG and Rs.2,480 for HIG.

3.2.3 Land and Housing

The socio-economic survey reveals the following data about housing conditions and ownership of the
respondents.

„ Housing Typology. Up to 62 % of the poor live in independent houses; 12% of the poor
respondents reside in row houses and on an average 21% of the poor respondents reside in slums.
„ Ownership of houses. Majority of the respondents owned houses. Among the poor categories the
average house ownership is 84%, which is comparatively higher than the proportion of houses
owned by the LIG category (80% of the total LIG respondents). The MIG and HIG respondents
own 81% and 90%, respectively.
„ Housing Condition. Among the poor, majority of the Most Vulnerable category i.e., 71% live in
kutcha houses. Among the Just Vulnerable category, 30% live in kutcha houses. The data
indicates that there is a direct relation between the income category and the housing condition.

3.2.4 Social Capital

Social capital refers to the trust-based network among people that are reinforced by norms of
behavior. Like other forms of capital (financial, physical, human and natural), social capital is an asset

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that helps people and groups cope with poverty. Social capital analyses the nature of donor and
beneficiary through the social contacts. Social capital is the network of contacts, reciprocal
obligations and political influenced that can be called upon if needed. Social capital facilitates
constrictive collective actions in a society and is considered an important element for success in a
project.

Social Organizations. Malankara Social Service Society (MSSS), Thiruvananthapuram Social

Service Society (TSSS), and Loyola Extension Services (LES), and Federation of Residents
Association (FRAT) are a few citizens’ groups that create civic consciousness for the social and
cultural development of people. Self Help Groups and Neighbor Hood Groups were formed as part of
Kudumbashree’s Urban Poverty Alleviation Program to address the needs of the poor. Sakhi, Sahayi,
Legal Aid Cell, Women Cells, etc. are organizations expressing gender concerns in the city.
Balashabha is an innovative attempt by Kudumbashree to tap the creativity of children for their
educational improvement and cultural enlightenment. On an average, five children in the age group 5
to 15 years belonging to neighborhood groups, irrespective of whether poor or not, are formed into
Balashabhas. Kudumbashree is currently expanding these groups in all rural and urban areas.

Non Governmental Organizations. Kerala Sasthra Sahitya Parishad (KSSP) is one of the NGOs in
Kerala focused on “Science for Social Revolution.” Both, the State administration and the local
administration accept KSSP’s research works and studies regarding education, health, water supply,
waste management, rural technology management, etc. KSSP has several units, regional committees
and district committees to undertake its programs. These units have ‘Balavedi’ (Children Groups) to
enhance the scientific and technological understanding of children through science clubs, forestry
clubs, etc. Rotary Club, Lions Club, Young Men’s Clubs, etc. are other major informal groups among
people, especially within the city.

3.2.5 Health
Kerala has the most extensive medical infrastructure among all states in India. Thiruvananthapuram
has 32 private hospitals including super specialty hospitals. Sree Chitira Thirunal Institute of Medical
Sciences and Technology and Regional Cancer Centre are examples of the super specialty hospitals.

Out of the 44 respondents in the LIG and poor category, 22 persons suffered from diarrhea, and
majority of the affected respondents were from the MV groups. Cholera and typhoid affected 12
persons and majority is from MV and JV respondents. Out of the ten jaundice cases reported, majority
of them (80% of those affected) were from Low Income Groups. 12 Malaria cases were reported
mainly from MV and UP groups and 4 cases of dengue fever between JV and LIG category.

All diseases reported are from the poor and the LIG areas with the coastal areas reporting the majority
of incidences of malaria.

Other prominent diseases identified during the survey were 196 cases of skin disease, 182 cases of
common fever, 141 cases of diabetes, 131 cases of asthma, and 100 cases of cardiac arrest.

82% of respondents in each respondent group are satisfied with the current services.

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3.2.6 Education
Kerala has achieved a high literacy rate of 90.92% (Census 2001) as against an all India rate of
65.38%. Literacy rate of Thiruvananthapuram District is 89.22%. 57% of primary school students
study in government schools and 21% primary students depend on aided schools; the remaining 22%
depend on unaided schools (Vikasana Rekha 2002-07).

Findings from the baseline survey reveal that of the total respondents, there are 12% illiterate women
and 8% illiterate men. Majority illiterates are from the poor category. Schools exhibit a healthy
enrolment and retention rate up to secondary education; however, from the higher secondary level the
dropout rate is high, especially among the poor.

3.3 Access to Services

This part of the report reviews the socio-economic profile in relation to available infrastructure.

3.3.1 Water Supply

The existing water supply system in Thiruvananthapuram covers most of the urban area. However, the
supply is intermittent in some outer areas due to limited supply capacity and water losses. The
following are the findings from the baseline study:

a) Water Sources. 72% of the non-poor and 28% of poor have access to water through household
water connections/piped water supply and 70% of the poor respondents depend on stand posts for
water. Across all respondents, 35% depend on open wells or bore wells.
b) Satisfaction Levels with the Water Supply System. All groups are generally satisfied with the
current supply system. But the meaning of satisfaction varies between groups – for the non poor
groups it is the pressure and quality whereas for the poor groups it is the accessibility, quantity,
time spent in getting water, etc. 62% of the poor category and 85% of the non poor category are
satisfied with existing water supply system.
c) Willingness to Pay for Improved Water Supply. Among the poor only 34% are willing to pay for
improved water supply. The willingness to pay is more among non-poor i.e., 33% among LIG,
42% among MIG and 30% among HIG.

3.3.2 Sanitation
Approximately 20% of Thiruvananthapuram municipal corporation area is covered by a piped
sewerage system and serves the core city area and adjacent residential areas. In the remaining un-
sewered areas, sewage disposal from households is through septic tanks, borehole latrines and
community toilets. There are also many houses without any sanitation facilities. The following are the
findings from the baseline study:

„ Type of Access. Among the poor, 49% of the Most Vulnerable, 79% of the Just Vulnerable and
92% of the Upper Crust of the Poor own toilets. 8% of the poor depend on public toilets and 13%
of the poor resort to open defecation. Among non-poor, all MIG and HIG have own toilets and
94% of LIG have own toilets.

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„ Type of System Used. The most common type of wastewater treatment available in the
community is a septic tank with 20% of the poor respondents owning one. 54% of respondents
belonging to MIG and 40% of HIG currently use septic tank as their means of sewage disposal;
29% of MIG respondents and 30% of HIG respondents have access to the sewerage system. Low
cost sanitary toilets are the most used sanitary option with the following usage: 42% in LIG
households, 42% in UP households, 50% in JV households and 43% in MV households. An
underground sewerage system is available to only 10% to 15% of the poor households, 27% of
LIG households and 30% of MIG households. Hygiene problems are found more in coastal and
slum areas.
„ Satisfaction level of the Present Sanitation System. More than 50% of the Most Vulnerable and
Just Vulnerable are not satisfied with the present sanitation system. Among the UP, LIG and
HIG the satisfaction level ranges from 64% to 70%. The MIG category indicated a higher degree
of satisfaction at 85% households being satisfied with the current system.
„ Willingness to Pay for Better Sanitation. 60% of HIG, 55% of MIG and 43% of the LIG are
willing to pay for improved services, whereas only 35% of the poor are willing to pay for
improved sanitation services.

3.3.3 Drainage
The following are findings from the baseline study:

„ Details of Flooding. Flooding affects the property and approach roads of 64% of the respondents,
in each category, due to residences being situated in low-lying areas. Respondents from the non-
poor groups are relatively less affected while the poor residing in low-lying areas comprising
75% of MV category, 69% of JV category and 72% of UP category experience problems related
to flooding. Many among the poor are living either in slums or in other over crowded localities
without proper drainage.
„ Average Cost of Damage per Occurrence. The average cost of damage per occurrence, caused by
flooding, for the MV category is Rs.2,830, for the UP category is Rs.1,885 and for the JV
category is Rs.565. Flood damage cost reported by the MIG category is Rs.74 per occurrence and
the HIG category interviewed did not incur any expenditure due to flooding.
„ Satisfaction Level of Present Drainage System. 52% of the poor households are dissatisfied with
the present drainage system; however, 60% of MIG households and 61% of HIG households
were satisfied with the present drainage system.

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3.3.4 Solid Waste Disposal

The following are findings from the baseline study:

„ Usual Mode of Disposal. 49% of the total households surveyed practiced waste/garbage burning
frequently, to dispose certain portions of the total household waste generated. 21% of the
households surveyed dispose of waste within their own premises, which is an indication of space
availability for disposal and 15% dispose waste at locations identified by the Municipal.
Kudumbashree and other NGOs together collect waste from the balance of households, which is
prominent among 28% of LIG households, 18% of MIG households, and 34% of HIG
households since it is a paid service. The habit of dumping waste along the roadside is on the
increase, which was observed by the researchers during the transcend walks.
„ Frequency of Waste Collection. Daily waste collection is carried out from 61% households and
on alternate days from 13% of the households. Waste is collected from 13% households three or
four times a week. Among the poor, 61% MV households, 65% JV households and 66% UP
households reported daily waste collection service.
„ Solid Waste Management Satisfaction Levels. 23% of the poor category respondents are
dissatisfied with the solid waste management services while 78% of the non-poor categories are
satisfied with the available solid waste management system.
„ Willingness to Pay for Improved Services. Willingness of the people to pay for improved solid
waste collection services indicates that 21% MV households, 32% JV households, 34% of UP
households, 32% of the LIG households, 48% of the MIG households and 65% of the HIG
households are willing to pay for improved services.

3.3.5 Roads, Street Lighting & Access to Public Transport

The following are findings from the baseline study:

„ Level of Satisfaction. 49% of all respondents indicated satisfaction regarding the road condition.
„ Street Light Functioning. 26% poor households, 39% LIG households, 47% MIG households and
66% HIG households expressed satisfaction about street light functioning. Adequate street
lighting is not provided in slums and other areas where the poor reside.
„ Satisfaction Level regarding Public Transport System. 78% of the respondents across all
categories were satisfied with the Public Transport System.
„ Willingness to Pay for Better Transport Services. 25% of the households across the poor, LIG
and MIG are willing to pay for the improved transportation services. Among the HIG households
41% are prepared to pay for the additional transportation facilities.

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4. POVERTY AND VULNERABILITY

4.1 Overview
Provisional results from Census 2001 indicate that Thiruvananthapuram has a slum population of
11,667 persons comprising 1.5% of the total city population and 25% of the State’s slum population.
The above estimates are contingent on the methodology adopted by the Municipal Corporation in
classifying and notifying informal settlements within its jurisdiction.

The analysis for this project is based on the figures obtained from the socio-economic baseline
households survey and from the qualitative assessments obtained from the participatory rapid
appraisal (PRA). The survey also provided insights into the risk faced by poor households,
vulnerability issues and access to urban services.

It is now widely understood that poverty is experienced through a variety of dimensions of which low
income is only one. There are varying issues associated with poverty including the relative
vulnerability of different groups, the ability of poor households to graduate from poverty and for the
poor to withstand livelihood risks such as unemployment, sickness, etc. Effective poverty reduction
programs need to be able to differentiate these groups and design appropriate and targeted responses.

The following sections seek to provide a more detailed analysis of the Most Vulnerable (MV), Just
Vulnerable (JV) and Upper Crust of the Poor (UP) categories of households.

For the project and the socio-economic study the poor have been classified into Most Vulnerable
(MV), Just above Vulnerable (JV) and Upper Crust of the Poor (UP). This classification is purely
based on the revised risk parameters identified and accepted for poverty eradication by the State
Poverty Eradication Program, Kudumbashree. The nine risk parameters adopted for urban areas
comprise:

1) No land/less than 5 cents (approximately 2,400 sq feet) of land;

2) No house/dilapidated house;
3) No sanitary latrine;
4) No access to safe drinking water within 150 meters;
5) Women headed household/presence of a widow, divorcee/abandoned lady/unwed mother;
6) No regularly employed person in the family;
7) Socially disadvantaged groups (SC/ST);
8) Presence of mentally or physically challenged person/chronically ill member in the family; and
9) Families without color TV.

Family having at least four of the above factors is classified as a ‘Family at Risk’ or ‘Poor Family’.
Since the location of poor households and their distribution across the city was identified in
consultation with Kudumbashree, i.e. State Poverty Eradication Mission officials.

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4.1.1 Employment
The main income earner in 66% of all poor households is in informal employment (informal
employment refers to daily wage earning activity related to petty shops, manual workers in trade and
service, construction worker, etc.). The study indicates that the main income earner was in an informal
sector for 75% of MV households, 69% of JV households and 64% of UP households. Unemployment
is reported among 13% of the poor households and 9 % of the non-poor households.

Women as the main income earners were observed among 16% households across all categories that
were surveyed in the city. In the poor households, 22% had women as the main income earners.
Among different categories of poor households 27% of the MV, 21 % of JV and 17 % of the UP
households had women as the main income earners.

4.1.2 Financial Capital

The total average monthly expenditure of the MV, JV and UP households was Rs.2,150, Rs.2,585 and
Rs.3,220 respectively with a city average of Rs.4,790. Poor households spent an average of Rs.1,360
per month on food; the non-poor spent Rs.2,360 per month.

Among the poor households 74% of MV, 87% of JV, and 93% of UP households lived in self-owned
houses. 71% of MV, 30% of JV, and 13% of UP households live in kutcha structures.

In terms of consumer goods ownership and usage, 99% HIG households have refrigerators, 98% HIG
households have television sets, and 95% HIG households have telephones. Television is the most
common consumer good and is found in 80% of all households surveyed; it finds a wide patronage
among the poor with ownership by 29% MV households, 61% JV households and 80% UP
households. Personal computers are rare among households surveyed and only 7% of all households
surveyed use them.

4.1.3 Poverty Alleviation in Thiruvananthapuram

Swarna Jayanthi Shahari Rozgar Yojana (SJSRY), National Slum Development Program (NSDP) and
Valmiki Ambedkar Beem Awas Yojana (VAMBAY) are the major poverty eradication programs
implemented through Government of India funding. The fund is routed through the State Poverty
Eradication Mission (SPEM) known as Kudumbashree, to the local bodies.

Incidence of Poverty and Deprivation. While Census 2001 indicates a slum population constitution
equivalent to 1.5% of the city population, data (Economic Review 2003) indicates that over 5% or
600 families suffer further deprivation through lack of access to basic services. Discussions with slum
dwellers revealed that improved sanitation is a high priority. Poverty and high unemployment levels
characterize the fishing population located along the coastal areas of Thiruvananthapuram where a
large section of the poor reside.

Poverty Eradication by the Municipal Corporation. Poverty eradication programs by the MC are
undertaken through Community Development Societies (CDS), Area Development Societies (ADS),
and Neighborhood Groups (NHGs). The Municipal Corporation has provided loans for self-
employment programs by utilizing Central and State Government funds. The Corporation has

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provided self-employment loans to 653 beneficiaries during the 9th Five-Year Plan Period; the above-
mentioned beneficiaries were selected from 4,072 below poverty line (BPL) applicants.

Under the Development of Women and Children in Urban Areas (DWCUA) scheme, 110 group
beneficiaries were organized. In collaboration with the CDS, ADS and Kudumbashree the Municipal
Corporation organized 169 training programs (2002-03). Activities of women NHGs are progressive
and through a system of micro-financing and informal banking, the NHGs assimilated Rs.11 million
and made loans available to 4,364 beneficiaries.

Poverty eradication programs are not only based on income generating activities but also on
infrastructure development. A Gender Resource Centre started by the CDS provides extension
activities to the public, women, members of SC/ST groups and other weaker sections, with an
objective of community empowerment.

The officials of the State Poverty Eradication Mission are launching innovative programs to reach out
to more areas of support for the poor and scale up the on-going activities.

The Municipal Corporation area also caters to 5,000 destitute families for whom rehabilitation is a
serious problem. Under its 3rd Annual Plan (prepared as a part of the decentralized planning activity
under the Kerala Development Program), the MC will ensure rehabilitation of the destitute families
through Ashraya, a destitute rehabilitation program designed by Kudumbashree.

The following were findings of the Baseline Study:

„ Government and Public/Private sector undertakings have initiated welfare programs and social
security schemes to safeguard people in case of crisis and risks.
„ Overall access and utilization of welfare and social security services by the poor households is
inadequate.

Out of six welfare and social security programs (unemployment benefits, ESI, PF, Gratuity, Family
Pension, Insurance) only 6% of the poor households surveyed access these schemes - limited to
Pension/Family Pension and insurance schemes. Even among the non-poor households surveyed, only
6% availed insurance schemes and 10% availed pension schemes.

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5. INSTITUTIONS, MANAGEMENT AND CAPACITY

5.1 Decentralization
Kerala Development Program. Subsequent to the 74th Constitution Amendment Act (CAA), 1992
the Government of Kerala (GoK) embarked on a policy of decentralization of powers to local
governments. The Kerala Municipalities Act, 1994, was drafted based on decentralization principles
laid down in the 74th CAA. In September 1995, GoK transferred powers and functions to local
governments; along with institutions, offices and functionaries. Key features of the decentralization
initiative comprised: (i) transferring health related institutions (except medical colleges and regional
specialty hospitals) to local governments; (ii) transferring all schools to Urban Local Bodies (ULBs);
(iii) planning and implementing centrally sponsored poverty alleviation schemes through ULBs; (iv)
planning social welfare schemes, implementing Integrated Child Development Scheme (ICDS),
affecting payment of various social security pensions, and creating centers for disabled care as ULB
responsibilities; and (v) planning and providing urban basic services, including water supply,
sanitation, storm water drainage and urban roads (excluding those provided/maintained by the State
Public Works Department).

GoK chose to operationalize the decentralization process through participatory local-level planning
which was initiated through the People’s Plan Campaign or the Kerala Development Program. The
Annual Plan of the Municipal Corporation (MC) comprises development projects planned at the
grass-root level and approved by the Council – financing of all approved projects is through ULB own
funds, loans from Financial Institutions and plan grants under State and Central schemes.

Financial devolution formed the backbone of decentralization and comprised: (i) providing
approximately 30-40% of the total plan size of the State as untied devolutions to local governments
for developmental works – of the total allocation to a local self government institution (LSGI), 30% is
allocated for SC/ST development and 70% is allocated for general purposes (comprising 10% in
productive sectors, 10% for slum infrastructure, not more than 50% on infrastructure, and 30% for
service sector); (ii) stipulating that no part of the devolved funds should be used for staff salaries and
establishment expenditure; and (iii) releasing funds in fourteen installments during a fiscal year; any
shortfalls in fund usage would result in allocation lapsing. Of importance is the feature regarding
planning and implementing projects prepared by local self governments – 30-40% of the plan size of
the State’s budget was set apart for local self governments with 15% of the said amount earmarked for
ULBs.

5.2 Service Delivery and Inter-Agency Coordination

According to the KM Act, 1994, the Municipal Corporation/local self-government is responsible for:

„ Civic service delivery that consists of: (i) preparing and implementing a water supply and
sewage disposal schemes (ii) providing adequate sanitation through solid waste collection and
disposal, low cost sanitation and surface drainage; (iii) providing street lighting facilities; (iv)
constructing and maintaining roads; and (v) providing facilities for public conveniences.
„ Administrative services that consist of: (i) issuing various certificates; (ii) maintaining public
amenities; (iii) maintaining public utility services; and (iv) providing ambulance services.

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„ Regulatory services that consist of: (i) issuing licenses and permits; (ii) registering births, deaths,
marriages, and private hospitals; (iii) issuing notices and other certificates for taxation purposes;
(iv) maintaining records and registers of all municipal transactions; and (v) abating nuisances.
„ Transferred services that consist of undertaking: (i) maintenance and operations of health and
educational institutions; (ii) economic development in the LSGI jurisdiction; (iii) social welfare
programs; and (iv) social security schemes.

State-level Departments, Programs and Missions, and Institutions also govern urban management and
basic service delivery in the State’s ULBs.

a) State Level Departments of Local Self Government, Water Resources, Public Works, Revenue
and Housing, General Administration, Power, Health, and Science, Technology and Environment
provide policy and administrative directions to various State and local-level agencies for effective
urban basic service delivery. Departments overseeing transferred functions like education; health,
etc. also play a key role in urban service delivery.
b) Missions constituted by GoK effectively administer the process of good governance, facilitate
urban environmental management, improve financial management in ULBs and assist in poverty
alleviation; these include the Modernizing Government Program (MGP)2, Clean Kerala Mission
(CKM), Information Kerala Mission (IKM), and State Poverty Eradication Mission
(Kudumbashree).
c) Institutions supporting activities in urban management include Kerala Water Authority (KWA),
Kerala Urban Development Finance Corporation (KUDFC), Kerala Institute of Local
Administration (KILA), and Development Authorities.

Inter-agency Coordination. Inter-agency coordination depends upon the service provision type and
the legal context for the said provision. The following are key issues associated with the aforesaid
services:

„ While the KM Act, 1994, and amendments therein requires the MC to maintain and arrange
water and sewerage services, KWA continues to provide the said services in
Thiruvananthapuram.
„ New/additional services within the MC area are constructed as deposit works, with the MC
making a deposit with KWA for the identified work.
„ Non-remittance of the water tax component in the property tax, apportioned towards capital
contribution, to the Kerala Water Authority affects repayment of funds towards capital creation
to improve water supply.
„ Reduction in State transfers to the MC from duty on transfer of property. Through a 1994
Government Order, GoK ensures that KWA receives payment towards demand raised by KWA

2
The Asian Development Bank aids the MGP mission. GoK launched MGP in 2002 with an objective of improving governance in various
State departments. With specific reference to local governments, MGP focuses on frameworks for preparing five-year plans, performance
focused basic service delivery, local economic development potentials, systems to strengthen accountability, budgeting, accounting and
resource mobilization systems, training needs for local government personnel, and policy decisions for effective governance.

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on the MC towards operational cost on head-works and street taps (25% of the duty on transfer
of property, transferred by GoK to the MC, is deducted and apportioned to KWA).
„ GoK through a Government Order has created a system of coordination between KWA and the
MC regarding operation and maintenance; the same may be further refined to facilitate large-
scale / citywide projects.
„ Dredging activities along main drainage channels are carried out by the Irrigation Department
based on the gravity of the problem. Holistic approach to drainage maintenance not adopted;
Irrigation Department and MC maintain drains/channels within their control.
„ Poor utilization of Centrally Sponsored Scheme fund by the MC (channeled through
Kudumbashree / State Poverty Eradication Mission) with 80% utilization of SJSRY funds, 54%
utilization of NSDP funds, and 33% progress regarding VAMBAY schemes.
„ Under Section 30 of the KM Act, 1994, the MC is required to carry out spatial planning; this
function is currently carried out by the TCPD at the MC’s request. The MC oversees land use
zoning originally the responsibility of the Thiruvananthapuram Development Authority
(TRIDA).

5.3 Organization Structure of the Municipal Corporation

The municipalities in the Travancore area of Kerala continued to function under the Travancore
District Municipalities Act until the unified Kerala Municipalities Act, 1960 (Act 14 of 1961) came
into force on September 1, 1961. Trivandrum Municipality was abolished and a Corporation
constituted for the city in October 1940 by the Trivandrum City Municipal Act, 1940. The Act was
replaced by another Act in 1952 and by the Kerala Municipal Corporations Act, 1961. The Kerala
Municipalities Act, 1994, now governs all municipal functions in Thiruvananthapuram MC.
Municipal administration is carried out in 81 divisions / wards.

5.3.1 Deliberative/Executive Wing

A Mayor (elected from the councilors) chairs the Council meetings, and is responsible for overall
supervision and control of administrative functions of the Municipal Corporation. The Council is
composed of all elected councilors and subject to the provisions of the KM Act, the administration of
the MC vests in the Council; the Council’s period extends for five years. The MC through the Council
has all the powers, authority and responsibilities of the Government, to enable it to function as an
institution of self-government in respect of the matters entrusted to it. The Council, subject to the
provisions of the KM Act, may constitute committees for exercising its powers, discharging such
duties or performing such functions, as it may delegate to the Committees. A Deputy Mayor presides
over Council meetings during the absence of the Mayor. The Mayor devolves his/her functions on the
Deputy Mayor when he/she is indisposed or out of the Sate. The Deputy Mayor is also the Chairman
of the Finance Standing Committee.

Standing Committee. According to the KM Act, every Municipal Corporation shall constitute
Standing Committees on the following subject areas and may exercise such powers as delegated to it
by the Council:

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„ Finance. To supervise the utilization of budget grants and oversee the timely assessment and
collection of taxes, fees, rents, etc.;
„ Development. To deal with dairy development, cooperation, small-scale industries, institutional
finance, etc. and to prepare development plans;
„ Welfare. To deal with matters of welfare of women and children, development of SC/ST, social
welfare, etc.;
„ Health and Education. To deal with matters of public health, education, etc.;
„ Works. To deal with matters of public works, housing, etc.;
„ Town Planning and Heritage. To deal with matters regarding town planning, etc.; and
„ Appeals Relating to Tax. To dispose of appeals on taxation, etc.

Steering Committee. The KM Act lays down that every MC shall have a Steering Committee
consisting of the Mayor, Deputy Mayor and Chairmen of the Standing Committees and the Mayor
shall chair the Steering Committee. The Steering Committee is to coordinate and monitor the
functioning of all Standing Committees and shall have the powers as delegated by the Council.

Ward Committee. The Ward Committee consists of ward councilor as Chairperson and the members
are drawn from the residents association, registered neighborhood groups, educational institutions in
the ward, registered trade unions, etc. The Ward Committee disseminates information at the ward
level regarding development and welfare activities. The KM Act lays down that even the Council
shall not alter the priority of the development work list prepared by the Ward Committee.

5.3.2 Administrative Wing

The Secretary is the administrative head of the MC and carries out resolutions of the Council, reports
compliance to the Council, exercises powers and discharges duties conferred under the KM Act. The
Secretary implements all the decisions/directions of the Mayor, ensures safe custody of the Municipal
Fund and attends to all litigations for or against the MC. Seven departments manage the functions of
the Municipal Corporation (refer Figure 5-1 for organization set-up). In addition to the Central
Office, five Zonal Offices manage decentralized functions of the Municipal Corporation; these
include Kadakampally, Nemom, Ulloor, Attipara and Thiruvallom. Inter departmental coordination is
detailed in Volume 7 – Urban Management and Institutional Development.

a) General Administration Department. The General Administration Department (GAD) manages

staff postings and transfers, defines staff duties and responsibilities, prepares administration
reports and ensures proper communication between the departments and the Corporation Council.
The PA to the Secretary heads the GAD.
b) Accounts Department. The Accounts Department (AD), a key department of the MC, manages
MC finances and monitors the use of allocated funds for different schemes. It plays a major role
in the formulation of the budget. The Accounts Officer is responsible for supervising all financial
transactions related to the MC, advising the Secretary on all internal financial matters,
maintaining records of financial receipts and expenditure in accordance with the purpose and
utilization of funds, reporting deviations in utilization of funds in any of the approved schemes,

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assisting the MC in budget preparation, maintaining accounts regarding stamp duty surcharge and
State grants, maintaining petty cash book and general cash book and attending to audit
requirements and other such accounts-related duties. The AD is also responsible for internal audit
of all bills for payment, audit clearances, preparation of annual financial statements and the
demand, collection and balance statement (DCB).
c) Engineering Department. A Superintending Engineer (SE) heads the Engineering Department and
is assisted by two Assistant Executive Engineers (AEE) and four Assistant Engineers (AE). The
major duties and responsibilities of the Engineering Department include construction and
maintenance of roads, drains and other public works. An AE in the Drawing Section supports the
Engineering Department in preparing requisite detailed engineering drawings for undertaking
works. An Executive Engineer (EE) in-charge of projects handles major schemes of the
Municipal Corporation. The EE is supported by an AEE and an AE in overseeing construction of
major schemes like shopping complexes, bus terminals, etc.
d) Revenue Department. The Revenue Department (RD) is another key department of the Municipal
Corporation, consisting of a Revenue Officer (RO), nine Revenue Inspectors and 43 Bill
Collectors. Some of the major responsibilities of the Revenue Officer include responsibility for
collecting taxes such as, property tax, advertisement tax, and entertainment tax; issuing notices
for recovery of tax; and monitoring revenue collections of the Municipal Corporation.
e) Health Department. A Corporation Health Officer (CHO) heads the Municipal Corporation’s
Health Department (HD). The HD is responsible for conservancy services, sanitation facilities,
solid waste management and other public health duties. The CHO is assisted by an Assistant
Health Officer, 19 Health Inspectors and 45 Junior Health Inspectors (JHI). The JHI are in-charge
of works at the field level, which includes monitoring and supervising the work of sanitary
laborers in the wards under their charge and attending to specific local complaints.
f) Town Planning Department. A Town Planning Officer (TPO) heads the MC’s Town Planning
Department (TPD). The TPD is primarily responsible for enforcing Master Plan regulations,
awarding building permissions and facilitating land acquisitions for major schemes. The TPD
also conducts routine inspection of MC properties. Two Assistant TPOs and eight Building
Inspectors carry out the department’s functions.
g) Council Department. A Council Secretary/PA to Secretary heads the Council Department (CD),
which manages records relating to Council meetings and records all resolutions undertaken by the
Council.

Transferred Institutions. Health Institutions (except Medical Colleges, General Hospitals and other
Specialized Hospitals) are now under the direct control of the Municipal Corporation; daily
management and maintenance of facilities is under the MC’s control, however, staff salaries,
recruitment and transfers is managed by GoK. General Education (comprising High Schools, Higher
Secondary and Vocational Higher Secondary, Primary and Upper Primary Schools) is also under the
MC’s direct control; GoK is responsible for management and staff salaries, etc., similar to
responsibilities for health institutions.

A similar division of responsibility is observed for other transferred institutions like social welfare,
agriculture, animal husbandry, dairy, fisheries and SC/ST. Under social welfare, most social security

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schemes3 are transferred to the MC; social security pension payment for eligible persons (under the
following categories and based on stipulated norms: old age, widow, agriculture workers, physically
handicapped) and unemployment wages is in accordance with GoK fund transfer to the MC. The MC’s
workload has increased due to the additional responsibility, however, provisions for commensurate staff
has not been made.

Zonal Operations. Zones in the city were created for newly added areas through merger of gram
panchayats with the MC jurisdiction. Officials at the MC Central Office are currently in charge of zones
and there is no official seated at the Zonal Office and overseeing operations within the MC’s jurisdiction.
The Zonal Offices are mainly responsible for tax assessment and collection, licensing of trades, issue of
building permits and sanitation. Table 5-1 provides the departmental staffing structure.

Table 5-1: Staffing Pattern of Thiruvananthapuram Municipal Corporation

Department Regular / Regular / Contingent / Contingent /
Sanctioned Filled Sanctioned Filled
General Administration (including
343 343 16 16
Revenue and Account)
Engineering Department 48 46 - -
Health Department 131 128 1,303 1,290
Town Planning Department 23 22 - -
Education Department 20 20 - -
Other Departments 95 94 - -
Total 660 653 1,319 1,306
Source: Thiruvananthapuram Municipal Corporation.

5.4 Capacity Building

As a service organization, capacity building of the MC is critical for planning and asset creation, and
continued core service delivery and asset management.

Planning. According to the State’s Urban Policy and Action Plan (2002) and the KM Act, the MC
requires:

„ Undertaking responsibility of urban planning, where the MC requires building staff capacity to
undertake preparation of the Municipal Development Plan including urban planning to reduce
State agency involvement in urban planning and implementation;
„ Undertaking preparation of Development Vision and Citywide Development Plans, which the
MC is currently undertaking but the planning mechanism does not provide for a holistic
approach; MC staff capacity should be built to ensure integration of plan works and adoption of a
holistic approach to citywide infrastructure provision; and
„ Establishing a Planning Department within the MC, which should undertake all planning
responsibilities for the preparation of the Municipal Development Plan including spatial planning
and land use management for the identification of land for specific projects such as solid waste
treatment / disposal plants.

3
Previously under the State-level Departments like Revenue, Labor, Social Welfare, etc. The funds are now transferred from these
departments to the MC for disbursal.

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The MC’s Planning Department will ensure works implementation, and monitoring and asset
management by the Engineering and Health Department. Immediate focus is required to address
requirements under the Kerala Development Program, where no specific post was sanctioned or
department created within the Municipal Corporation to carry out decentralized planning4.

In formulating local-level plans, Ward Committees5 play an active role supported by the MC’s
Engineering Department. However, procurement is carried out on the basis of the Stores Purchase
Manual and PWD Manual; the MC lacks access to a comprehensive Works Manual comprising
procedure from planning through implementation. Besides proving to be a pressure on the MC’s
resources, works are disjointed and do not adopt a holistic view to planning and implementation.

Core Service Delivery and Asset Management. GoK’s Urban Policy and Action Plan (2002)
focuses on core service delivery with specific emphasis on:

„ Improving urban drainage, where it is imperative for the MC to develop Storm Water Master
Plans that should be part of integrated planning within the Municipal Development Plan;
„ Undertaking solid waste management and sewerage provision, where GoI guidelines suggest
waste disposal should be under the direction of a Municipal Environmental Engineering
Department instead of the present Health Department;
„ Undertaking water and sewerage services, where Section 315 of the KM Act, 1994, provides the
Municipal Corporation with a mandate to provide water supply and sewerage services within its
jurisdiction;
„ Preparation of annual maintenance plans; and
„ Implementing urban poverty alleviation programs, where the MC is undertaking steps to ensure
increase in fund utilization with assistance from Kudumbashree.

Institutional Development. Primarily the State Finance Commission recommendations and the KM
Act govern institutional development in the MC, which focus on:

„ Reorganizing decentralized operations based on magnitude of works / revenue collection /

municipal functions to satisfy the requirement for preparing Municipal Development Plans;
„ Introducing information technology (IT) enabled services and stream lining municipal systems
and procedures; the Information Kerala Mission oversees property mapping and introducing
computerized accounting and management information systems (MIS); and
„ Addressing human resource development, through appointment of additional and appropriately
qualified staff for Municipal Development Plan preparation and implementation.

4
Technically qualified staff was absent in panchayats; hence, they were allowed to procure external assistance for plan/estimate preparation.
5 Ward Committees are constituted in LSGIs with population exceeding 100,000 persons. For all LSGIs with population less than 100,000
Ward Sabhas are constituted.

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Regarding project implementation capabilities, the MC currently undertakes new projects through the
Engineering Department (through the Project Engineer in larger municipal corporations). However,
these projects are limited to construction of shopping complexes, marriage halls, etc. and are largely
limited to buildings. Major urban infrastructure projects are generally outsourced to State Line
Departments on a deposit work basis, wherein the entire cost of the project is deposited with the State
Department for undertaking the project; the State Department is responsible for designs, contract
award and project management. The Municipal Corporation has no control on the progress and quality
of the work carried out. Staff in the Municipal Corporation’s Departments attend to operation and
maintenance or basic service delivery and are not equipped to handle project design, detailed
engineering or construction supervision of urban infrastructure projects. It is therefore imperative to
build staff capacity to handle these functions in order to manage sub-project components under
KSUDP.

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Figure 5-1: Organization Set-up of Thiruvananthapuram MC

Municipal
MunicipalCorporation
Corporation
Council
Council

Municipal
MunicipalCorporation
Corporation
Mayor
Mayor

Municipal
MunicipalCorporation
Corporation
Secretary
Secretary

Council
Council General
GeneralAdministration
Administration Accounts
Accounts Revenue
Revenue Engineering
Engineering Town
TownPlanning
Planning Health
HealthDepartment
Department
Department
Department Department
Department Department
Department Department
Department Department
Department Department
Department Corporation
CorporationHealth
Health
Council
CouncilSecretary
Secretary Deputy
DeputySecretary
Secretary Accounts
AccountsOfficer
Officer Revenue
RevenueOfficer
Officer Corporation
CorporationEngineer
Engineer Town
TownPlanning
PlanningOfficer
Officer Officer
Officer

Lady
LadyMedical
Medical
Officer
Officer
Projects
Projects
Engineer
Engineer UPA
UPACell
Cell
Project
ProjectOfficer
Officer

Council PA
PAto Accounts Revenue Assistant
AssistantTown Assistant
Council to Accounts Revenue Assistant
AssistantExecutive
Executive Town AssistantHealth
Health
Superintendent
Superintendent Secretary
Secretary Superintendent
Superintendent Inspector
Inspector Engineer Planning
PlanningOfficer
Officer Officer
Engineer Officer

Planning
PlanningCell
Cell Assistant
Assistant Assistant
Assistant Drawing
DrawingSection
Section
Superintendent
Superintendent Engineer
Engineer Engineer
Engineer Asst.
Asst.Eng.
Eng.

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6. MUNICIPAL FINANCE
6.1 Municipal Fund
All cash received by the municipal corporation constitute a fund called the Municipal Fund (Fund)
under the Kerala Municipality Act 1994 (KM Act 1994). The items of income credited to the Fund
consist of the following:

„ Own source revenue which includes taxes, duties, cess and surcharge, fees from licences and
permissions, income from municipal properties, and income from other miscellaneous items;
„ Share of the taxes levied by the Government and transferred to the municipal corporation;
„ Grants released to the municipal corporation by the Government for the implementation of
schemes, projects and plans formulated by the municipal corporation;
„ Grants released to the municipal corporation by the Government for implementation of schemes,
projects and plans assigned or entrusted to the municipal corporation under the KM Act 1994;
and
„ Money raised through donations and contributions from the public and non-governmental
agencies.

The municipal corporation keeps its books of accounts under the cash-based system rather than the
accrual method of accounting. Revenues are recorded only when received while expenditures are
recognized only when paid.

The KM Act 1994 mandates the publication, not later than first week of June, of an annual financial
statement of the municipal corporation of the preceding year showing a classified abstract of receipts
and payments of the municipal corporation under Revenue, Capital and Debt heads, a demand,
collection and balance statement and a statement of the general financial position of the municipal
corporation.

6.2 Revenue Account

The Revenue Account deals with the recurring Revenue Receipts and Expenditures of the municipal
corporation. Presented in Table 6-1 is the Revenue Account of the municipal corporation for the
fiscal years (FY) 1998-99 to 2002-03.

During those years, the municipal corporation had revenue surplus annually. The revenue surplus was
highest in FY 1999-00 at Rs.105.559 million (40% of Total Revenue Receipts) and was lowest the
following FY 2000-01 at Rs.8.932 million (4% of Total Revenue Receipts). Although there was
revenue surplus each year, Total Revenue Expenditures had increased annually at a much higher rate
of 15% than Total Revenue Receipts, which grew only at 10%. If the present growth trend of revenue
receipts and expenditures continues, the municipal corporation will incur revenue deficit in the
coming years. If such will be the case, a transfer from Revenue Account of some amounts to Capital
Account cannot be expected to meet shortfall in Capital Account to fund some capital programs of the
municipal corporation.

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Table 6-1: Revenue Account

(Rs. Million)
Particulars 1998-99 1999-00 2000-01 2001-02 2002-03
Revenue Receipts
I. Own Source Income:
A. Tax Income
a) Property tax 59.59 53.04 47.99 66.97 104.26
b) Profession tax 13.98 33.27 39.78 38.96 66.71
c) Entertainment tax 39.96 45.09 34.72 35.27 34.17
d) Other municipal taxes 1.77 3.28 5.54 2.08 5.02
Total Tax Income 115.30 134.67 128.03 143.28 210.16
B. Non-Tax Income
a) Receipts from municipal properties 17.19 11.88 11.08 10.43 19.09
b) License fees 12.88 17.75 11.46 14.07 15.53
c) Others 5.37 0.74 5.31 4.49 10.21
Total Non-Tax Income 35.45 30.37 27.85 28.99 44.82
Total Own Source Income 150.75 165.04 155.88 172.27 254.98
II. Assigned / Shared Taxes
a) Surcharge on stamp duty 26.06 17.52 4.70 64.48 71.90
b) Motor vehicles tax 10.00 13.52 3.30 13.40 13.40
Total Assigned/Shared Taxes 36.06 31.04 8.00 77.88 85.30
III. Grants-in-Aid from Central/State
Government
a) Grants-in-aid & contributions 3.35 48.02 41.59 5.07 7.58
b) Grants for running transferred institutions 62.65 21.28 34.05 19.96 24.18
Total Grants-in-Aid 66.00 69.29 75.64 25.02 31.76

Total Revenue Receipts 252.81 265.37 239.52 275.17 372.04

Revenue Expenditure
a) Management and Collection of Taxes 44.30 30.19 96.38 77.45 101.84
b) Public Works 12.30 32.12 17.27 16.76 23.47
c) Town Planning 1.75 3.09 2.84 4.36 2.91
d) Education 1.93 0.98 1.27 1.80 1.49
e) Water Supply & Drainage 0.00 0.00 0.00 0.41 0.57
f) Public Health & Sanitation 76.01 61.91 70.04 82.09 83.78
g) Street Lights 12.47 16.40 22.39 28.04 33.55
h) Municipal Properties 0.29 0.14 1.08 0.05 0.01
i) Non Plan Operation Expenses 14.27 14.98 18.63 11.83 37.53
j) Miscellaneous Expenses 0.00 0.00 0.68 0.00 0.00
Total Revenue Expenditure 163.33 159.81 230.59 222.79 285.15

Revenue Surplus / (Deficit) 89.48 105.56 8.93 52.38 86.89

Source: Thiruvananthapuram Municipal Corporation.

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Revenue Account

400
350
300
Rs. Millio n

250 Revenue Receipts

200
150 Revenue Expenditures
100
50
0
1998-99 1999-00 2000-01 2001-02 2002-03
Fiscal Year

6.2.1 Revenue Receipts

The Revenue Receipts of the municipal corporation can be classified into 3 types of revenue source:

„ Own source income;

„ Revenue from assigned and shared taxes; and
„ Grants-in-aid from the Government.

Own source income refers to those revenue items which the municipal corporation is responsible for
in terms of their assessment and collection. Assigned and shared taxes are taxes collected by the
Government but the revenue is assigned to or shared with the municipal corporations. Grants-in-aid
from the Government come in the form of plan, maintenance of assets, general and specific purpose
grants.

During the FYs 1998-99 to 2002-03, the percentage share of grants from the Government to the
municipal corporation’s Total Revenue Receipts has significantly dropped from 26% in FY 1998-99
to 9% in FY 2002-03 while own source income and assigned/shared taxes significantly increased their
share from 60% to 69% and from 14% to 23%, respectively.

FY 1998-99 Revenue Receipts FY 2002-03 Revenue Receipts

Own So urce Income - 60% 9% Own Source Income - 69%

Assigned / Shared Taxes - 23%
26% A ssigned / Shared Taxes - 14%
Grants fro m Government - 9%
Grants from Go vernment - 26% 23%

60%
14% 69%

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In terms of average annual growth rate, own source income grew at 14%, assigned/shared taxes grew
at 24% while grants-in-aid from the Government declined at 17%.

Revenue Receipts Sources

300
250
Rs. Million

200 Ow n Source Income

150 Assigned / Shared Taxes
100 Grants from Government
50
0
1998-99 1999-00 2000-01 2001-02 2002-03
Fiscal Year

Own Source Income. Own source income are in the form of own tax income and own non-tax
income. Own tax income refers to taxes, which the municipal corporation is responsible for in terms
of their assessment and collection from taxpayers. Own non-tax income includes fees from licences
and permissions, income from municipal corporation’s properties, and income from other
miscellaneous items.

During the FYs 1998-99 to 2002-03, the percentage share of Own Tax Income to Total Own Source
Income increased from 76% in 1998-99 to 82% in 2002-03 while the share of Own Non-Tax Income
declined correspondingly. During the same period, Own Tax Income grew at an annual average rate
of 16% while Own Non-Tax Income grew at 6%.

Percent Share to Ow n Source Incom e Ow n Source Income

110% 225
100% 200
90% 175
80%
150
70%
60% 125
50% 100
40% 75
30% 50
20%
10% 25
0% 0
1998-99 1999-00 2000-01 2001-02 2002-03 1998-99 1999-00 2000-01 2001-02 2002-03

F iscal Y ear F iscal Y ear

Own Tax Inco me Own No n-Tax Income

Own Tax Inco me Own Non-Tax Inco me

The major items of own tax income are: property tax, profession tax and entertainment tax. These
three municipal taxes contribute about 98% to the municipal corporation’s Total Own Tax Income,
about 80% to Total Own Source Income and about 55% to Total Revenue Receipts for FY 2002-03.

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Property, Profession & Entertainment Taxes Share to Total Ow n Tax Incom e,

Ow n Source Income & Revenue Receipts

400

350

300

250

200

150

100
50

0
19 9 8 - 9 9 19 9 9 - 0 0 2000-01 2 0 0 1- 0 2 2002-03
F iscal Y ear

P ro perty, Pro fessio n & Entertainment Taxes

To tal Own Tax Inco me
To tal Own So urce Inco me
To tal Revenue Receipts

Property Tax. Property Tax is the biggest source of own tax income of the municipal corporation. It
contributed about 50% to the municipal corporation’s Total Own Tax Income, about 41% to Total
Own Source Income and about 28% to Total Revenue Receipts for the FY 2002-03. During the FYs
1998-99 to 2002-03, it grew at an average annual rate of 15%.

The KM Act 1994 provides that the aggregate percentage to be levied for property tax, in the case of a
municipal corporation, shall not be less than 13% and not more than 25% of the annual rental value
(ARV) of all buildings or lands within the municipal area unless exempted under the Act or any other
law.

The property tax may comprise of a tax for general purpose and a service tax. The service tax may
include:

„ Water and drainage tax to provide for expenses connected with the construction, maintenance,
repair, extension or improvement of water or drainage work provided or hereafter to be provided;
„ Lighting tax to provide for expenses connected with the lighting of the municipal area by gas,
electricity or any other means; and
„ Sanitary tax to provide for expenses connected with the general sanitation of the municipal area
and the removal of rubbish, filth and carcasses of animals from the private premises.

Where water tax and drainage tax are levied, the Corporation Council shall declare what proportion of
tax is levied in respect of water works and the remainder shall be deemed to be levied in respect of
drainage works.

The property tax rate schedule as prescribed in the KM Act 1994 and those presently in force in the
municipal corporation are as follows:

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Table 6-2: Property Tax – Rate Schedule

Sl. Particulars Minimum Rate (%) for a Present Rate (%)
No. Municipal Corporation –
KM Act 1994
1. Tax for general purposes 6 11
2. Lighting Tax 2 2
3. Drainage Tax 2 2
4. Water Tax 1 1
5. Sanitation Tax 2 2
Total 13 18

The municipal corporation maintains a demand register for all properties assessed for property tax.
The last survey of properties was carried out in the year 1988-89. There is a proposal to computerize
the property tax database. Under the present system, ARVs are revised once in four (earlier till 1999
was five) years. There has been no change in the property tax rate and ARV since 1992.

According to the Census 2001, the population of the municipal corporation area was 744,739 and the
total number of holdings was 126,115. As of 31st March 2003, the number of holdings according to
the municipal corporation’s records was 147,153 broken into residential at 132,906, commercial and
industrial at 10,354 and others (exempted from property tax) at 3,893.

The details of demand and collection (current and arrears) for the last three fiscal years are shown in
Table 6-3.

Table 6-3: Property Tax -Demand and Collection (Rs. Million)

Account Type 2001-02 2002-03 2003-04
Demand
Current 77.9 96.4 104.4
Arrears 109.0 120.0 112.2
Total 186.9 216.4 216.6
Collection
Current 48.6 54.1 57.6
Arrears 18.3 50.1 52.4
Total 66.9 104.2 110.0
Balance
Current 29.3 42.3 46.8
Arrears 90.7 69.9 59.8
Total 120.0 112.2 106.6
Collection Efficiency (%)
Current 62.4 56.1 55.1
Arrears 16.8 41.7 46.7
Overall 35.8 48.1 50.8

The proposal linking property tax assessment to plinth area assessment is still pending for approval by
the State Government. Under the proposal, all ULBs are required to switch to a zonal area-linked
system involving self-assessment of ARV by the assessed. The new system will classify the municipal
area into more than one zone on the basis of, as far as possible, similar locations of the buildings and
lands situated therein.

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Profession Tax. Profession Tax is a major own tax income of the municipal corporation. It
contributed about 32% to the municipal corporation’s Total Own Tax Income, about 26% to Total
Own Source Income and about 18% to Total Revenue Receipts for the FY 2002-03. During the FYs
1998-99 to 2002-03, it grew at an average annual rate of 48%.

Profession tax is levied on companies and individuals vide Section 245 of the KM Act 1994. All
companies and individuals transacting business or engaged in profession in the municipal area for at
least 60 days in a half year shall pay the tax at rates prescribed by Government. However, Article
276(2) of the Indian Constitution has fixed the maximum tax leviable per year at Rs.2,500. In respect
of salaried employees, the definition of income includes dearness allowance in addition to basic
salary.

The demand and collection performance for the year 2003-04 is outlined in Table 6-4.

Table 6-4: Profession Tax -Demand and Collection

(Rs. Million)
Account Type Demand Collection Balance
55.60 47.47 8.13
Current
(100%) (85%) (15%)
23.83 18.33 5.50
Arrears
(100%) (77%) (23%)
79.43 65.80 13.63
Total
(100%) (83%) (17%)

Entertainment Tax. Entertainment Tax is another major own tax income of the municipal
corporation. It contributed about 16% to the municipal corporation’s Total Own Tax Income, about
13% to Total Own Source Income and about 9% to Total Revenue Receipts for the FY 2002-03.
During the FYs 1998-99 to 2002-03, it declined however at an average annual rate of 4%.

The tax is collected according to the provisions of Section 3 of the Local Authorities Entertainment
Tax Act. A proposal to tax on the basis of seating capacity and occupancy is pending for approval by
the State Government. Entertainment tax is presently fixed between 24 to 48% of the price of
admission.

Own Non-Tax Income. During the FYs 1998-99 to 2002-03, Own Non-Tax Income grew at an
annual average rate of 6%. It contributed about 18% to the municipal corporation’s Total Own Source
Income and about 12% to Total Revenue Receipts for the FY 2002-03.

Income from municipal corporation’s properties contributed the biggest share to Own Non-Tax
Income during the FYs 1998-99 to 2002-03 with fees from licences and permissions not far behind.

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FY 1998-99 Ow n Non-Tax Income FY 2002-03 Ow n Non-Tax Income

15.2% 22.8%
Inco me from M un. Income fro m M un.
Properties - 48.5% P ro perties - 42.6%

License Fees - 42.6% License Fees -

48.5% 36.3% 34.6%

Others - 15.2% Others - 22.8%

36.3%
34.6%

Water supply within the municipal corporation area is presently being carried out by the Kerala Water
Authority (KWA), an autonomous body created in the year 1984. The municipal corporation,
therefore, does not have any revenue from water charges.

Assigned and Shared Taxes. At present, there are 2 assigned and shared taxes from the State
Government with the local governments. These are the surcharge on stamp duty and motor vehicle
tax. Under Section 270 of the KM Act 1994, the surcharge on stamp duty shall be at such rate fixed
by the Government but shall not exceed 5% of the value of property transacted. On the motor vehicle
tax, the Government shares 20% of the net collection of the tax and is distributed among Village
Panchayats and ULBs as per formula based on unit length of roads.

During the FYs 1998-99 to 2002-03, assigned/shared taxes grew at an average rate of 24%. With the
growth, their contribution to Total Revenue Receipts increased from 14% to 23%. Individually,
surcharge on stamp duty contributed 10.3% in FY 1998-99 and 19.3% in FY 2002-03 to the municipal
corporation’s Total Revenue Receipts while motor vehicle tax contributed 4% and 3.6%, respectively.

Assigned / Shared Taxes vs. Total Revenue Receipts

400
350
300
R s. M illio n

250
200
150
100
50
0
1998-99 1999-00 2000-01 2001-02 2002-03
Fiscal Year

Surcharge on Stamp Duty Motor Vehicle Tax Total Revenue Receipts

Basic Tax, a general tax on land recommended by First State Finance Commission for devolution to
the local governments, is still pending before the State Government for implementation.

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Grants-in-Aid. During the FYs 1998-99 to 2002-03, the percentage share of grants from the
Government to the municipal corporation’s Total Revenue Receipts has significantly dropped from
26% in FY 1998-99 to 9% in FY 2002-03. During the period, grants declined at an average annual
rate of 17%. Grants for running transferred institutions accounted for 95% of the total grants in FY
1998-99 and 76% in FY 2002-03.

Grants-in-Aid vs. Total Revenue Receipts

400
350
300
Rs. Million

250
200
150
100
50
0
1998-99 1999-00 2000-01 2001-02 2002-03
Fiscal Year

General Purpose Running Transferred Institutions Total Revenue Receipts

6.2.2 Revenue Expenditures

The Revenue Expenditures of the municipal corporation are classified and recorded according to the
following cost centers: (i) Management and Collection of Taxes; (ii) Public Works; (iii) Town
Planning; (iv) Education; (v) Water Supply and Drainage; (vi) Public Health and Sanitation; (vii)
Street Lights; (viii) Municipal Properties; (ix) Non Plan Operation Expenses; and (x) Miscellaneous
Expenses.

During the FYs 1998-99 to 2002-03, the two most significant cost centers were Management and
Collection of Taxes and Public Health and Sanitation. The two cost centers accounted for 74% of
Total Revenue Expenditures in FY 1998-99 and 65% in FY 2002-03.

FY 1998-99 Revenue Expenditure FY 2002-03 Revenue Expenditure

8.7% M gt. & Col. of Taxes - 27.1% M gt. & Col. of Taxes - 35.7%
0.0%
0.2% 0.0%
Public Works - 7.5% 13.2% Public Works - 8.2%
7.6% 27.1%
Town Planning - 1.1% 0.0% Town Planning - 1.0%
11.8% 35.7%
Education - 1.2% Education - 0.5%

Water Supply & Drainage - 0.0% Water Supply & Drainage - 0.2%

Public Health & Sanitation - 46.5% Public Health & Sanitation - 29.4%
7.5%

1.1% Street Lights - 7.6% Street Lights - 11.8%

46.5% 29.4% 8.2% M unicipal Properties - 0.0%

1.2% M unicipal Properties - 0.2%
0.5% 1.0%
0.0% Non Plan Operation - 8.7% 0.2% Non Plan Operation - 13.2%

M iscellaneous - 0.0% M iscellaneous - 0.0%

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The expenditures for Management and Collection of Taxes grew significantly at an average annual
rate of 23% from Rs.44.298 million in FY 1998-99 to Rs.101.841 million in FY 2002-03. As a result
of the high growth, its percentage share to Total Revenue Expenditures increased from 27.1% in FY
1998-99 to 35.7% in FY 2002-03, thus replacing Public Health and Sanitation as having the highest
expenditure share. The average annual growth rate in Own Tax Income, however, was lower at 16%
making the current tax collection efforts less cost efficient.

The expenditures for Public Health and Sanitation grew from Rs.76.009 million in FY 1998-99 to
only Rs.83.775 million in FY 2002-03 or an average annual rate of 2%. With the minimal growth,
Public Health and Sanitation decreased its percentage share to Total Revenue Expenditures at 46.5%
in FY 1998-99 to 29.4% in FY 2002-03.

Other major cost centers are Public Works, Street Lights and Non Plan Operation Expenses
(expenditures for running transferred institutions). All 3 cost centers grew significantly during the
same period. Public Works grew at an average annual rate of 17%, Street Lights at 28% and Non Plan
Operation Expenses at 27%. The percentage share of Public Works expenditures to Total Revenue
Expenditures increased slightly from 7.5% in FY 1998-99 to 8.2% in FY 2002-03 while Street Lights
increased from 7.6% to 11.8% and Non Plan Operation Expenses increased from 8.7% to 13.2% for
the same period.

Water Supply and Drainage expenditure was insignificant at Rs.0.574 million in FY 2002-03 or 0.2%
of Total Revenue Expenditures. This is due to the fact that the Kerala Water Authority is operating
water supply system within the Municipal Corporation area. Drainage accounted for 90% of the Water
Supply and Drainage expenditure in FY 2002-03.

The expenditures of the other cost centers had been insignificant during the period. Town Planning’s
percentage share to Total Revenue Expenditures was 1% in FY 2002-03, Education was 0.5% and
Municipal Properties was practically none.

The MC has no outstanding amounts borrowed from financial institutions, State Government and
other creditors for the execution of its development works. The MC has no arrears with regards to its
obligations for operating expenses.

6.3 Capital Account

The Capital Account deals with the non-recurring Capital Receipts and Expenditures of the municipal
corporation. Presented in the table below is the Capital Account of the municipal corporation for the
FYs 1998-99 to 2002-03.

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Table 6-5: Capital Account

(Rs. Million)
Particulars 1998-99 1999-00 2000-01 2001-02 2002-03
Capital Receipts
A. Funds from Government
a) Government Grants -Plan Schemes 19.53 14.82 0.00 23.51 0.00
b) Government Loans -Plan Schemes 0.00 0.00 0.00 0.00 0.00
c) Government Grants -Transferred Institutions 0.00 0.00 0.00 0.00 1.29
d) Government Grants -Kerala Development Proj. 157.97 146.00 167.64 150.34 141.19
Total Funds from Government 177.50 160.81 167.64 173.85 142.48
B. Funds from Financial Institutions -
Borrowings 0.00 0.00 0.00 0.00 0.00
C. Transferred from Revenue Account 0.00 0.00 0.00 0.00 0.00
Total Capital Receipts 177.50 160.81 167.64 173.85 142.48
Capital Expenditure
a) Management 0.00 1.73 2.62 3.08 2.07
b) Plan Schemes 29.56 8.91 22.09 16.22 16.09
c) Poverty Eradication 2.09 18.45 0.02 23.51 3.86
d) Transferred Institutions 0.00 6.41 0.71 0.00 0.60
e) Education 0.58 0.00 0.04 0.00 0.01
f) Water Works & Drainage 0.00 0.00 0.00 0.00 0.00
g) Public Health 0.00 0.00 0.21 0.00 0.00
h) Street Lighting 0.00 0.00 0.00 0.00 0.21
i) General Items of Expenditure 4.59 2.42 26.29 2.68 1.33
j) Expenditure under Kerala Development Proj. 45.86 128.84 209.99 114.74 140.69
Total Capital Expenditure 82.68 166.74 261.98 160.22 164.85
Capital Surplus / (Deficit) 94.81 (5.93) (94.34) 13.62 (22.38)
Source: Thiruvananthapuram Municipal Corporation.

The municipal corporation had capital surplus in 2 fiscal years of Rs.94.814 million (53% of Total
Capital Receipts) in FY 1998-99 and Rs.13.623 million (8% of Total Capital Receipts) in FY 2001-
02. In the 3 other fiscal years, the municipal corporation incurred capital deficit. The capital deficit
was highest in FY 2000-01 at Rs.94.34 million (56% of Total Capital Receipts). Over the five-year
period, the cumulative capital deficit was Rs.14.22 million.

Capital Account

300
250
Rs. Million

200 Capital Receipts

150
100 Capital Expenditure
50
0
1998-99 1999-00 2000-01 2001-02 2002-03
Fiscal Year

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6.3.1 Capital Receipts

Capital Receipts come in the form of capital grants released by the Government for implementation of
schemes, projects and plans formulated by the municipal corporation; capital grants released by the
Government for the implementation of schemes, projects and plans assigned or entrusted to the
municipal corporation under the KM Act 1994; loans from the Government for the implementation of
schemes, projects and plans; loans from financial institutions; and transfers from the Revenue
Account when the municipal corporation has revenue account surplus. During the FYs 1998-99 to
2002-03, Capital Receipts were 100% grants from the Government for the implementation of plan
schemes. The municipal corporation did not receive any amount as loan from the Government or
financial institutions nor transfer any amount from the revenue account surplus during the period.

6.3.2 Capital Expenditures

The municipal corporation classifies and records capital expenditures according to the following
capital cost centers: (i) Management; (ii) Plan Schemes; (iii) Poverty Eradication; (iv) Transferred
Institutions; (v) Education; (vi) Water Works and Drainage; (vii) Public Health; (viii) Street Lighting;
(ix) General Items; and (x) Kerala Development Program.

Plan Schemes and the Kerala Development Program, which is actually a Plan Scheme also, accounted
for 88% of capital expenditures during the FYs 1998-99 to 2002-03 while Poverty Eradication
accounted for 5.5%.

FY 1998-99 Capital Expenditure FY 2002-03 Capital Expenditure

0.0%
1.3%
9.8%

2.3%
35.8%
0.4%

0.0%
2.5%
0.1%
85.3%
0.0%
0.7%
55.5% 0.0%
0.0% 0.8%
5.6% 0.0%
0.0% 0.0%

M anagement - 0.0% Plan Schemes - 35.8% M anagement - 1.3% Plan Schemes - 9.8%
Poverty Eradication - 2.5% Transferred Institutions - 0.0% Poverty Eradication - 2.3% Transferred Institutions - 0.4%
Education - 0.7% Water Works & Drainage - 0.0% Education - 0.0% Water Works & Drainage - 0.0%
Public Health - 0.0% Street Lighting - 0.0% Public Health - 0.0% Street Lighting - 0.1%
General Items - 5.6% Kerala Development Proj. - 55.5% General Items - 0.8% Kerala Development Proj. - 85.3%

6.4 Key Financial Issues

Municipal finance plays a key role in any local government. While municipal corporations are
empowered to levy and collect their own taxes and user service charges, they must be efficient in
revenue administration so they can generate sufficient funds from various sources to deliver and
finance municipal services. In their delivery of the municipal services, the municipal corporations,
however, must be cost efficient and control expenditures within their reasonable limits. Otherwise,
municipal corporations cannot accumulate adequate surplus funds to undertake additional and future
development programs.

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The key financial issues affecting the municipal corporation that need immediate attention are:

No. Issues Actions Required

1. Property Tax collection performance was very poor Municipal corporation must exercise all its
for the last 2 years (about 43% collection statutory powers to enforce collection from chronic
efficiency). defaulters. In addition, it must also explore other
means like extensive public awareness campaign
or reminder to settle property tax, appointment of
tax collectors on commission basis, giving
discounts or other incentives for early payment,
full or partial condonation of surcharges if past
accounts are settled in full, etc.
2. There has been no change in the Property Tax rate State Government must act urgently on the
and ARV since 1992. legislation required to put the new system in place,
i.e. plinth area based Property Tax and once every
four years revision.
3. The database on property holdings is outdated. Municipal corporation must undertake another
The last property survey carried out was in 1988- detailed survey to identify properties that are not
89, more than 15 years back. included yet in the tax net. In addition, it must
speed-up computerization of the database.
4. Cost of tax administration is high and is rising as a Municipal corporation must review and rationalize
percentage to own taxes actually collected (about staffing with regards to (a) general administration
38% in FY 1998-99 to 48% in FY 2002-03). Own related to tax management (b) billing, including
tax income grew at the rate of 16% while cost of preparation of demand notices and transmitting
tax administration grew at 23%. Personnel cost them to the tax payers (c) collection (d)
accounted for 74% of the total tax administration maintenance of records and reconciliation. It must
cost in FY 2002-03 while vehicle operating cost likewise control other cost items within reasonable
accounted for 11% or a total of 85% share. With limits.
cost outgrowing income, tax administration is not
cost efficient.
5. There has been no regular revision of other taxes State Government must act on the legislation
and non-tax income items while the costs of required to introduce automatic indexation or
revenue administration and delivery of municipal periodic revision of other taxes and non-tax
services have risen. income items.
6. There is a lack of adequate financial management State Government must prescribe that accounts
and information system. Adequate financial be maintained under a double entry accrual based
management and information system is necessary accounting system. Asset register must also be
for effective revenue administration and cost kept and regularly updated.
control. There is also a lack of reliable information
as to the assets required to be maintained.

6.5 Kerala Water Authority Finance

6.5.1 Mandate and Sources of Finance
The Kerala Water Authority (KWA) was constituted as an autonomous body by the Government of
Kerala on 1st April 1984 under the Kerala Water Supply and Waste Water Ordinance 1984 as a
successor to the erstwhile Public Health Engineering Department of the Government of Kerala. The
ordinance was replaced by the Kerala Water Supply and Sewerage (KWSS) Act 1986. Section 15 of
the Act has given KWA the following mandate:

„ To obtain periodic or specific information from any local body;

„ To prepare and carry out schemes for water supply and sewerage;
„ To abstract water for drinking purposes from any natural source and disposal of wastewater;
„ To lay down schedule of fees for all services rendered to Government, local bodies, institutions
or individuals;

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„ To fix and amend tariffs and charges for water supply and sewerage services and collect all such
fees;
„ To borrow money, issue debentures, obtain subventions, capital contributions, loans and grants,
to incur expenditure and manage its own funds; and
„ To grant loans and advances to such persons or authorities as the KWA may deem fit.

In the initial years of its establishment, KWA had a monopoly over the planning, designing,
execution, operation and maintenance of water supply and sewerage schemes across the entire State.
This monopolistic role of KWA in providing piped water supply and sewerage services underwent a
change after the 73rd and 74th constitutional amendments. Under these amendments, the responsibility
of supplying drinking water was vested with local bodies. The change is more marked in the case of
rural water supply. Government issued orders in March 1998 defining the procedures for the
implementation of small type of water supply schemes covering a single panchayat by the local bodies
with technical assistance from KWA and other agencies. As a result, KWA’s role is changing from
that of a monopoly provider of water to that of a facilitator and supervisory agency implementing only
urban and major comprehensive rural water supply schemes. KWA, however, continues to be
responsible for the large underground sewerage and sanitation schemes.

In line with its mandate, the sources of finance for KWA are water and related charges collected from
its customers, grants and loans from the Government of Kerala, grants from the Government of India,
and loans from financial institutions like Housing and Urban Development Corporation (HUDCO)
and Life Insurance Corporation of India (LIC).

6.5.2 Cost Recovery

The State Government’s policy on cost recovery for KWA operations is articulated in the KWSS Act
1986. The Act states that KWA “shall not, as far as practicable and after taking credit for any grants
or subventions or capital contributions or loans from Government, carry on its operations at a loss and
shall so fix and adjust its rates of taxes and charges as to enable it to meet as soon as feasible the cost
of its operations, maintenance and debt service and where practicable to achieve an economic return
on its fixed assets.” The Authority, however, has to take prior approval from the State Government for
the revision of its rates.

Water Supply
The existing water tariffs shown in Table 6-6 came into effect on 1 April 1999 but have not been
revised since.

Table 6-6: KWA Water Tariff Schedule

Customer Monthly KL Rate
Category Consumed
Domestic 0 –10 Rs.2/KL subject to minimum of Rs.20 / month + Rs.2 as MIC
10 –30 Rs.22 + @ Rs.3 /KL for above 10 KL
30 –50 Rs.82 + @ Rs.5/ KL for above 30 KL
Above 50 Rs.182 + @ Rs.7.35 /KL for above 50 KL
Non-Domestic 0 –50 Rs.7.35/KL subject to a minimum of Rs.100 / month + Rs.2 as MIC
Above 50 Rs.370 + Rs.10.60 /KL for above 50 KL
Industrial Whole consumption Rs.10.60/KL subject to minimum of Rs.200 / month + Rs.2 as MIC

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Water connection fees are Rs.500 for domestic and Rs.1,000 for non-domestic. Government local
bodies are charged for the standposts / street taps provided in their areas at the rate of Rs.2,628 per
street tap each year. Local bodies, however, are not charging any fee directly from street tap users.
Water charges per month are collected by KWA under the Provisional Invoice Card System.

KWA had requested the State Government in January 2000 to increase the water tariff by 30%
effective 1 April 2000 and to allow KWA to revise the water tariff from time to time corresponding to
the increase in power tariff. The State Government is yet to take a decision on this request.

All water connections are supposed to be metered. But, as per KWA’s Water Supply Regulations, the
responsibility of the safe custody and sound condition of the water meter is vested with the consumer.
If the meter is found defective the consumer shall repair or replace the defective meter within 30 days
with the concurrence of KWA on receipt of notice, at his own cost. In case of default, a surcharge is
imposed at the rate of 25% on the monthly water charges for the first month after the expiry of the
notice period; 50% for the next two months and 100% beyond that period. In case of continued
default, KWA shall have the power to disconnect the water supply to the premises without further
notice.

It is estimated that more than 50% of water connections have defective meters. However, KWA has
not been successful in implementing its regulations on defective meters. The consumers have
challenged the regulations on defective meters as being against the KWSS Act 1986. A proposal to
amend the Act is now under consideration.

Sewerage
At present, sewerage schemes are in operation only in two cities in the State, i.e. Thiruvananthapuram
and a part of Kochi. Except for a sewer connection fee, see Table 6-7, there are no monthly or annual
sewerage service charges collected.

Table 6-7: KWA Sewerage Connection Fee

Customer Category Rate

Domestic 10% of the estimate cost - minimum Rs.500
Non-domestic 10% of the estimate cost - minimum Rs.1,000
Casual 10% of the estimate cost - minimum Rs.1,000
Industrial 10% of the estimate cost - minimum Rs.2,500
Source: KWA

6.5.3 KWA Financial Performance in Thiruvananthapuram

KWA’s operation in Thiruvananthapuram has 130,028 water and 75,000 sewer connections. A
summary of the direct income and expenditures of KWA’s water supply and sewerage operations in
Thiruvananthapuram are presented in the following table below.

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Table 6-8: Water and Sewerage Operations – Income and Expenditure (Rs. Million)

Particulars 2001-02 2000-01 1999-00

Income
Operating Income * 289.21 284.65 164.54
Non-Operating Income (mostly penalties) 32.32 5.63 11.80
Total Income 321.53 290.29 176.33
Expenditure
Salaries & Allowances 62.10 71.40 67.16
Power Charges 4.75 12.32 12.32
Consumables ( including chemicals) 0.93 1.99 2.35
Repairs & Maintenance ** 10.78 7.94 6.65
Administrative & Other Expenses 4.90 4.59 4.89
Total Expenditure 83.45 98.24 93.37
Surplus (Deficit) 238.08 192.05 82.96
* Includes Sewer Connection Fee 1.134 0.730 0.742
** Includes Sewer Maintenance Cost 0.068 0.069 0.101

Excluded in the above expenditures are the direct water production costs, depreciation of
Thiruvananthapuram fixed assets and indirect costs which could be allocated like interest and head
office expenses. Thiruvananthapuram operation involves only the distribution of water coming from
KWA’s Aluvikkara head works. Under this operating set-up, the water production costs for
Thiruvananthapuram are recorded under Aluvikkara Division’s costs. KWA could not provide the
water production costs pertaining to Thiruvananthapuram operations.

The surplus results in the Thiruvananthapuram operations as presented above could be misleading due
to lack of water production costs. Likewise, the resulting operating cost recovery ratio if calculated
based on the above data could be misleading for the same reason. If the water production costs were
included, it is possible that Thiruvananthapuram operations would continue to incur operating losses
due to the extremely high non-revenue water (NRW) estimated at about 60% of water produced.

During the FY 1999-00 to FY 2001-02, operating income grew at an average of 33% while
expenditures decreased by 6%. This could be attributed to the increase in consumer base and cost
control measures undertaken by KWA. Non-operating income, mostly late payment charges imposed
and collected by KWA, grew incredibly at 66%. Collection efficiency on Thiruvananthapuram
accounts was about 26% which was slightly higher than the state average efficiency of 22%.

6.5.4 Key KWA Financial Issues

The key issues affecting the financial performance of KWA that need immediate attention can be
summarized as follows:

Non-Revenue Water (NRW)

Issue: The high NRW in KWA has been the major cause of its financial losses. The level of NRW has
reached to a point that it could outweigh the financial benefits to be derived from other revenue
enhancement and cost control/reduction measures to be implemented by KWA.

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Action Recommended: KWA needs to put in place a comprehensive NRW reduction program. The
program should include other parts of the state in addition those that will be implemented under
KSUDP and JBIC funded projects on water supply.

House Connections versus Standposts

Issue: The census 2001 indicated that only 40% of the urban population in Kerala had access to safe
drinking water, compared with the national average of 69%. This statistic has been recognized by the
state government which has an un-written social policy to improve the state percentage. As a result,
water lines have been extended and public standposts provided, often irrespective of the pressure and
volume of water available for distribution.

Action Recommended: As part of the NRW action, a policy should be agreed to increase the
provision direct house connections in place of providing public standposts. This action would reduce
the burden of the ULBs for the payment of standposts by increasing consumers directly connected
into the water tariff net. Standposts that are required due to social ‘safety-net’ necessity should be
metered as part of improving accountability and management procedures. The overall result will
provide a better service to all customers by reducing wastage.

Defective Meters

Issue: The huge number of defective meters could render ineffective any kind of measures to reduce
NRW. Without functioning meters to measure actual water production and usage, water consumption
is prone to wastage and consumers tend to be under billed.

Action Recommended: KWA should give priority for the replacement of defective meters. If the
present regulations on defective meters could not be implemented due to differences in the
interpretation of some sections in the KWSS Act 1986, KWA should get a court ruling on this issue or
have the Act amended to clarify the issue once and for all. For proper operational management of the
system, KWA should be responsible for the provision and maintenance of consumer meters.

Collection Efficiency

Issue: Collection efficiency has been very low. Implementation of disconnection policy on long
overdue accounts has been lax. KWA’s cash flow has been hampered by the chronic delay in payment
by government local bodies and a large portion of outstanding accounts belonging to them.

Action Recommended: Strict implementation of disconnection policy on long overdue accounts

should be carried out. Customers normally pay if disconnection policy is strictly implemented. The
State Government should assist KWA with regards to the collection of accounts owed by the
government local bodies. The Government should devise an inter-government payment system that
facilitates the accounts settlement among the different government bodies and institutions without
sacrificing the proper recording and accounting of expenses and control procedures of the concerned
institutions.

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7. URBAN PLANNING AND LAND USE MANAGEMENT

7.1 Planning Efforts in the Past
The first Master Plan for Thiruvananthapuram city was prepared in 1966 with a plan period of 20
years, in accordance with the then prevailing Town Planning Act; GoK approved the Master Plan in
1971. This Master Plan (1971) estimated a growth in population to 600,000 persons by 1986. The
Main objectives of the Master Plan (1971) were:

„ To achieve optimum utilization of the developable land in the city;

„ To evolve a judicious pattern of land use; and
„ To develop a good network of roads to allow smooth traffic flow.

However, rapid urbanization trends in the city’s periphery called for a larger planning area to be
considered under a Development Plan6 for 2001. The Development Plan (2001) or second Master Plan
covers an area of 148 sq. km with a projected population of 930,000 in 2001. The above area was
considered as the functional urban area of Thiruvananthapuram, against a city area of 75 sq. km. The
main proposals and status of the Development Plan (2001) are detailed in Table 7-1.

The Development Plan (2001) indicates a pattern for development by “allocating” areas on the map
for future residential, commercial industrial, recreation, transportation, utility, public and semi-public,
agriculture and water bodies. The DP (2001) also identifies areas for relocation of incompatible uses
and development of vacant land, redevelopment, regeneration, conservation and preservation.

The Town and Country Planning Department (TCPD), Thiruvananthapuram Municipal Corporation
(TMC) and Thiruvananthapuram Development Authority (TRIDA), have undertaken the preparation
of a new Development Plan for 2025. In this Development Plan (2025), various analyses like land use
and land survey are being carried out on the basis of revenue maps.

The major problem in preparation of Development Plans is up-dating town base maps and existing
land use maps, which are used as a basis for formulating development proposals. The existing land
use (1986) map available is outdated and of insufficient accuracy for proper physical planning. Recent
developments and extension of the cities are often not included. Aerial photographs and high-
resolution satellite images are potential data sources for spatial information for future planning
activities.

6
The Development Plan (2001) for Thiruvananthapuram is referred to as the second Master Plan.

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Table 7-1: Development Plan (2001) Status

Component Proposals Status

Growth Pattern Redevelopment of central Market area near Chalai and Most of the area has been
Palayam and its surroundings. developed near Palayam.
Population DP for TVM-2001 has suggested areas in the vicinity of Detail town planning schemes were
Distribution N.H. by-pass and Veli Tourism Complex kept for low- prepared and have been published.
density development.
Industries About 100 Ha proposed for industrial development. Very few Industries have been
located in Northwest region
(Panchayat Area covering 33 Ha).
This is mainly due to lack of
infrastructure.
Shifting of old industries from the central area of the city This is in process.
(which pose nuisance to the surroundings).
Transportation Terminal facilities for inter city traffic. Land acquisition for inter city
terminal is in process.
Improvement of Existing KSRTC bus terminals at Shifting of existing bus terminal from
Peroorkada, Pappanamcode and shifting existing bus East Fort to Ambalathara is ongoing.
terminal from East Fort to Ambalathara.
A lorry terminal should be located on southern side of It is in process of development at
Chalai Bazaar at Kuriathy Sreevaraham.
Water ways: T.S.Canal should be deepened to facilitate Will be Implemented under
navigation. It is proposed to provide loading and Theerapatham Urban Development
unloading facilities for county boats at Chakkai and Project.
Vallakkadavu. T.S.Canal, Veli Akkulam Lake and Edayar
Island are to be developed as places of tourism
importance.
Traffic Widening of the existing road from Kesavadasapuram to A total road length of nearly 42km.
Improvement Attakkulangara (Via Pattom, Palayam, East Fort etc.) has been selected by PWD & TRIDA
Projects (12 (Width 21 mtrs. To 24 mtrs.) Widening of the existing for upgrading.
Roads have been road from Ulloor to Sreekanteswaram and
selected) Sreekanteswaram to Killippalam connecting, Ulloor,
Medical College, Nalumukku, Uppilmmodu bridge,
Sreekanteswaram junction, Thakaraparambu, Power
House Junction, Caoorakattupalayam and Killippalam
(width 21 to 24 mtrs.). Widening of the existing road from
Peroorkada Chalai, via Kowdiar, Vellayambalam,
Vazhuthacaud, Mettukkada and Aryasala, Widening of
Palayam Shanghumughom road via Pattoor, Nalumukku
and Chakai.
Widening of Killippalam Karamana road (21 to 24 mtrs.) Completed
Widening of road from Palayam to Poojappura via Bakery Commenced in 2004
Junction, Vazhuthacaud and Jagathy width 15 to 18 mtrs
from Bakery junction to Poojappura and 21 to 24 mtrs
from Palayam to Bakery junction.
Formation of N.H 47 bypass to be completed to a width of From kazhakuttom to Vizhinjam it is
45 mtrs. being completed
Source: Development Plan for Thiruvananthapuram 2001.

7.2 Land Use Management

7.2.1 Land Use Pattern

The main impact of urbanization processes has been expansion and constant change of urban land use.
Physical, social, political and economical factors have played their decisive roles in forming
Thiruvananthapuram city’s land use pattern. Table 7-2 provides a break-up of different land use in the
city and Figure 7-1 indicates the land use pattern for 2001.

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Table 7-2: Land Use Pattern (2001)

Land use Area (Sq.km) Distribution (%)
Residential area 54.5 38.4
Commercial area 5.3 3.7
Industrial area 6.9 4.8
Public & semi public area 12.2 8.6
Transportation area 9.3 6.5
Agriculture 43.3 30.5
Water course 3.1 2.3
Parks & open spaces 7.3 5.1
Total 141.9 100.0
Source: Town and Country Planning Department, GoK.

The land use pattern indicates that 38.4% of the total developed area is under residential use. With
better planning and phased development, a smaller area of land could have accommodated the
existing population / properties. The present high percentage of land use for residential purposes is
due to the local preferences for low-rise / low density housing.

7.2.2 Development Pattern

In general, the physical development of Thiruvananthapuram city and the surrounding Panchayats is
along major transportation corridors, with concentration of urban development on major nodal points.
Being the administrative capital of the State, most of the major institutes and the Secretariat are
present in the central area of the city.

Recreational centers such, as zoo, museum, parks, open spaces and other socio-cultural centers are
also located in the central city zone. Major commercial centers are at Chalai, Palayam and East Fort.
Major industrial development has occurred in the northern region, which has enhanced educational
institutes and improved accessibility. The Vikram Sarabhai Space Center (VSSC) and a major project
of the Indian Space Research Organization (ISRO) are also located to the city’s northwest. Figure 7-2
indicates the development pattern in the project area.

Little development has taken place to the southeast of the project area, due to the restriction of the
Karamana River, which forms a barrier for development. Also the short distance (30 km) to the State
boundary reduces the attraction of development to this area.

There is a shortage of land for housing the urban poor at an affordable price, which has resulted in the
growth of slums and squatter settlements. The Thiruvananthapuram Municipal Corporation and Town
and Country Planning Department identified 31 slums and squatter settlements and according to
Census 2001; most slums are situated along the Pravathy Puthanar Canal and the coastal area.

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7.3 Key Issues

Key development issues include:

a) Informal Development in Fringe Areas. Areas like Sreekariyam, Kazhakuttom and

Kudappanakunnu are under pressure for further urban growth but do not have a sufficient level of
infrastructure and development control. This has resulted in the conversion of agricultural land
and filling/reclamation of water bodies for urban use. Large tracts of Government land in the
areas are easily susceptible to encroachment. Normally, lands are sub-divided and sold by private
developers to private individuals, which remain un-serviced or unused for many years and
without proper infrastructure facilities. Though enforcement powers exist under the KM Act,
1994, action is rarely taken to remove unauthorized developments. Extensive areas of
unauthorized development freeze land resources and thereby exert a negative impact on the
economic functioning of the city.
b) Shelter. There is a shortage of affordable housing in most of the planning area. The urban poor
find it difficult to get developed sites for house construction at an affordable price because of
high land cost. This has resulted in the growth of slums and Economically Weaker Section
(EWS) colonies. The Development Plan (2001) has identified present deficiencies in the housing
stock and future requirements but it has not indicated how shelter and land requirements for the
urban poor should be met. It is essential to estimate the actual housing needs of the populace
(including affordability), particularly for those Below Poverty Line (BPL) families.
c) Dearth of Infrastructure. In Thiruvananthapuram, significant areas of land were subdivided, sold
and developed for urban purposes. As a result, service demand exceeds infrastructure capacity
and the condition of infrastructure provided in the area has deteriorated.
d) Poor Management of Water Bodies/Tanks. Deterioration of water quality has occurred in
Akkulam lake and other water bodies due to discharge of untreated domestic and industrial
effluents. Water bodies and low-lying marshy areas are being reclaimed due to demand for land
for development. Weak regulations and ineffective enforcement of laws that exist to safeguard
water bodies compound the problem. Ground water is the primary source for domestic
consumption in newly developed areas but over extraction has resulted in brackish water,
especially along the coastal belt. Thus for any future use, ground water exploitation should be
effectively monitored and controlled.
e) Lack of Co-ordination in Planning. Industrial, residential and infrastructure investment decisions
are uncoordinated particularly in the fringe areas where pressures for urban expansion are
increasing and becoming increasingly difficult to monitor and control development. There is a
lack of clarity over departmental responsibilities for land use planning, development,
maintenance and enforcement. This has resulted in ineffective and uncoordinated decision-
making processes and actions.

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8. SUB-PROJECT RATIONALE - NEED AND DEMAND

8.1 Approach to Sub-Project Component Selection
The approach taken during the Project scoping exercise and identification of suitable sub-project
components included numerous meetings with the Municipal Corporation Mayors and technical staff
as well as state line agencies, such as KWA, PWD and Irrigation Department in their respective
sectors to determine their development plans and priorities.

In addition, surveys and focus group discussions were undertaken with city households and business
communities in order to obtain their considered view on priorities for city development investment.

8.1.1 Municipal Corporation Priorities

At the Mid Term Workshop, as part of the working group session, the City Mayors and officers were
requested to proportion any funding that might be available for infrastructure improvements as an
indicator of civic priority. The results for Thiruvananthapuram are presented in Table 8-1.

Table 8-1: Thiruvananthapuram Municipal Corporation Priorities

City / Sector Water Sewerage / Urban Solid Waste Roads & Poverty
Supply Sanitation Drainage Management Transport Alleviation
Thiruvananthapuram N/A 50% 10% 10% 25% 5%

8.1.2 Community Priorities

As part of the Project preparation, a Baseline Socio-Economic Survey was undertaken in all 5 Project
cities. The 1% sample household survey included questions on municipal service delivery and
priorities for improvement. For simplicity the results in Table 8-2 show the aggregate of both poor
and non-poor for each city against each sector.

Table 8-2: Thiruvananthapuram - Community Municipal Service Priorities

City / Sector Social Water Sewerage Urban Solid Waste Roads &
Category Supply /Sanitation Drainage Management Transport
Thiruvananthapuram Poor 1 2 3 4 5
Non-Poor 4 1 2 3 4

Clearly, the community priority is for improvements in water supply, sewerage/sanitation and urban
drainage, in that order.

8.2 Sub-Project Objectives and Component Selection Criteria

The Project purpose has been defined to assist the selected municipal corporations to “promote good
urban management and develop and expand urban infrastructure to increase economic opportunities
and to reduce vulnerability to environmental degradation and urban poverty.” The total investment in
each city varies, depending on the level of current basic needs, the city’s affordability, and the
assessed implementation capacity of the city or its agencies. Additional details on the Project
objectives and selection criteria are provided in Volume 1 – Main Report.

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9. URBAN INFRASTRUCTURE SERVICES

9.1 Water Supply

9.1.1 Existing Status

The existing water supply system in Thiruvananthapuram generally provides adequate coverage of the
urban area, however, supply is intermittent in some outer areas due possibly to limited supply capacity
and water losses.

The water supply in Thiruvananthapuram city was initially commissioned in 1933, which is widely
known as Wellington Water Works. A reservoir constructed at Aruvikkara panchayat , about 13 km
east of the Thiruvananthapuram city formed the source of the system. By the year 1966, the supply of
water was found grossly inadequate owing to the growth of the city in population and area. To meet
the increased demand, more water was been pumped from Aruvikkara to Vellayambalam water works
to increase the capacity of the water supply scheme. Another 7,000 m3 capacity overhead reservoir
was constructed at observatory Hill.

In 1972, a new treatment plant was commissioned at Aruvikkara for meeting the requirement of the
rapidly increasing population. The treated water was brought to Thiruvananthapuram through 1,200
mm cast iron pipe and collected in ground level service reservoirs at Peroorkada and Thirumala
having capacities of 8,000 m3 each. Another ground level reservoir of capacity 8,000 m3 was
constructed within the Water works campus. Further, the capacity of Aruvikkara reservoir was
augmented with construction of Peppara dam at the upstream of Karamana River.

In 1991, the estimated total demand for Thiruvananthapuram was 170 MLD. Serious water scarcity
prevailed in these years and subsequently in 1992, a new treatment plant was installed at PTP Nagar
with Karamana River (at Kundamankadavu) as the source. To meet the demand for the year 2000 a
new treatment plant was constructed and commissioned by increasing the total capacity of the scheme
to 200 MLD. The source of water, the location of the treatment plants and capacities are given in
Table 9-1.

Table 9-1: List of Existing Water Treatment Plants -Thiruvananthapuram

SI Source of water supply Name of plant Capacity MLD
No
1 Karamana River Vellayambalam Treatment Plant 36
2 Karamana River and Peppara Dam Aruvikkara Treatment Plant 154
3 Kundmankadavu (emergency use) PTP Nagar Treatment Plant 10
Total 200

Under a proposed JBIC funded water supply upgrading project in Thiruvananthapuram,

improvements will provide for rehabilitation of the existing water supply network and augmentation
of head works supply capacity. The JBIC project area covers Thiruvananthapuram Municipal
Corporation area and six adjoining suburban Panchayats, see Figure 9-1.

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9.1.2 Water Demand

Design Criteria
Kerala Water Authority has adopted an average per-capita demand supply of 200 Lpcd for planning
new water supply schemes for major urban areas, 135 Lpcd for peri-urban areas and 100 Lcpd in rural
areas where sewerage is not expected to be installed. In analyzing the future requirements for
Thiruvananthapuram the design parameters / level of services were considered in Table 9-2.

Table 9-2: Water Supply Design Parameters

Design Parameter Present Design Criteria Comments
Situation
City Population 760,000 (2004) 880,000 Design horizon 2036.
Population with access 684,000 (2004) 863,000 At least 98% population with access to
to city water supply mains water.
Supply Rate 132 Lpcd 200 Lpcd where Minimum requirement for sewerage.
(average) sewerage planned Excluding 15% UFW.
135 Lpcd in other Bulk supply to Commercial Institutional
areas and industries to be assessed separately.

Water production 200 MLD 330 MLD Includes other city and semi-urban
demands plus assumed reduction in UFW.
Water pressure 0-3m head 2-7m head Requires public awareness to reduce
wastages.
Supply period 8-10 hrs per day 24 hrs 30 year target.
Un-accounted for water 55% of Less than 20% of 30 year target.
(UFW) production production

Water Source Demand and Production Development

Allowing for 22% distributional and other operational losses, the water supply demand is given in
Table 9-3.

Table 9-3: Water Supply Demand and Phased Development

Description of Item 2006 2011 2021 2036

Corporation Population 767,000 788,000 833,000 880,000
Corporation demand of water supply (JBIC projection) 129.4 MLD 137.7 MLD 154.2 MLD 172.0 MLD
Panchayat Population (Served by system) 140,000 150,000 170,000 190,000
Panchayat demand of water supply (JBIC projection) 18.2 MLD 20.0 MLD 23.7 MLD 28.4 MLD

9.1.3 Analysis of Existing Situation and Needs

The analysis above confirms the current need for system improvement. However, it is understood that
the on-going JBIC project will address the current shortfall in supply capacity as well as the need for
reduction in water losses to adequately cater for current and future water supply needs in the Project
Area. There will be 2 phase implementation starting in 2006. KWA has initiated a comprehensive leak
detection program in the city under the JBIC project and preliminary results in few pockets indicate
the losses between 15-45%. Based on the estimated demand and expected improvements, the supply
of water in the project area will be adequate after implementation of the JBIC funded project for the
proposed expansion of sewerage and therefore no water supply component for Thiruvananthapuram is
included under this Project.

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9.2 Sanitation and Sewerage

9.2.1 Existing Sewerage System

Thiruvananthapuram Municipal Corporation (MC) presently comprises an area of 142 sq. km of
which 30% is covered by a piped sewerage system, which serves the core city area. Sewage disposal
from the households in un-sewered areas of the MC include septic tanks, borehole latrines and
community toilets. There are also many houses without any sanitation facilities. The existing
sewerage system was mostly implemented between 1945 and 1980; additions to the sewerage network
thereafter have been insignificant. The present sewerage system covers 70% of the originally planned
area. According to KWA records, there are 75,000 sewer connections with eleven pumping stations.
Sewage flows to four main pumping stations located at Kuriathy, Pattoor, Kannamola and Enchakal,
which pump approximately 50 MLD of sewage to the sewage farm at Valiyathura. Due to power
failures and non-availability of alternate power at pumping stations, the sewage overflows and
contaminates local drains. Parvathy Puthanar canal, which runs along the sewage farm, is also badly
polluted due to overflows of sewage from the sewage farm.

The existing sewerage plan is shown in Figure 9-2, which is divided into seven blocks, viz Blocks A
to G. Presently, the sewerage system exists in blocks A, B, C, D, and E. A and B blocks are almost
fully serviced whereas some part works are remaining in blocks C, D and E.

a) Block A. Areas serviced in this block include Kowdiar, Vellayambalam, Thycaud, Thampanoor,
Pazhavangady, Chalai, Manacaud, Puthenchathai, Jagathy and Palayam. This block was
commissioned in 1945. There are three lifting stations under this block at Thaliyal,
Mudavanmugal and Aranoor. The main pumping station in this block is at Kuriyathy from where
sewage is pumped to the sewage farm at Valiyathura. Capacity in this area is being augmented by
a new 1,200 mm gravity main, pump house and pumping main.
b) Block B. Areas covered under this block comprise of Sreekanteshwaram, Rishimangalam,
Vanchiyoor, Kaithamukku, Pattom Valley, Nanthencode, Barton Hill, etc. This area was
commissioned in 1965. There is a main pumping station in this block at Pattor from where
sewage is pumped to the Valiyathura Sewage Farm.
c) Block C. This block was partially commissioned in 1970 and covers an area of approximately 2.5
sq. km. It covers the low-lying area of the city, which includes Chackai, Pettah, Palkulangara,
Fort, Puthen Street, Sreevaraham, Manacaud portion, etc. There is a main pumping station at
Enchakal, which discharges sewage to the sewage farm at Valiyathura. In addition to the existing
pumping station at Enchakal, another pumping station is proposed at Kalpaka Nagar for
connecting areas located at the North-West of this block such as Kalpakanagar, Chackai,
Kanjiravilakom, remaining part of Pettah, Palkulangara, Anayara, etc. and then pumping the
effluent to the Enchackal pumping station. Even though the collecting sewer lines at the
Kanjiravilakom-Kalpakanagar are completed, the main lines leading to the proposed pumping
station are not laid. Some pipe laying works in these areas and a screen chamber are required for
commissioning the pumping station.

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d)

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e) Block D. The whole area is divided into two zones namely Zone I and Zone II. Zone I includes
Kesavadaspuram, Muttada, Ambalamukku and a portion of Kowdiar. Zone II comprises the
Medical College area, Kumarapuram, portion of Ulloor and Pottakkuzhy. This block was
partially commissioned in 1994. This block has two pumping stations viz. the Medical College
lifting station catering to the needs of the Medical College Complex and the Kannammoola
Pumping Station, which discharges sewage at the Valiyathura Sewage Farm.
„ In Zone I, there are four sewer mains, Ambalamukku Main, Kowdiar Main, Muttada Main
and Kesavadaspuram Main.
„ In Zone II, the main lines are Ulloor Main (Intercepting Sewer I), Trunk Mains I and II, and
Main Sewers I and II. The works on Main Sewer I, the Intercepting Sewer, its branch lines,
and the pumping main are complete. According to KWA records, 90% of the main sewer line
works are complete. Trunk Main II (40% complete), Main Sewer II (30% complete) and the
balance of Ambalamukku and Kesavadaspuram mains remain.
f) Block E. This block is sub divided into four zones viz. Zone I, Zone II, Zone III and Zone IV.
Zone I includes Sasthamangalam-Peroorkada area, Zone II consists of Pangode-Maruthankuzhy
area, Zone III consists of Vattiyoorkavu-PTP Nagar area and Zone IV includes Valiyavila area.
Only a small portion of the Peroorkada-Ambalamukku area was commissioned in 1990. There is
one lifting station in this block at Pipinmoodu near Sasthamangalam, which discharges sewage
into the main sewer (ISI) in Block A, leading to Kuriathy Pump house.
„ In Zone I, the work taken-up at present is the Main Sewer I, which has a total length of
2,360m starting from Peroorkada and connecting to the first manhole of a parallel main at
Sasthamangalam. The Main Sewer II and Main Sewer III have already been commissioned.
An incoming line to Main Sewer II running behind the Hindustan Latex company premises
at Peroorkada remains to be laid.
„ In Zone II, laying of Main Sewer -I at Chadiyara line has already been completed. The
crossing of Killy River by this line at Jagathy is to be constructed. The Main Sewer II line is
from Vettamukku-Maruthankuzhy area to Edappazhanji.
„ In Zone III, the main sewer starts from Vattiyoorkavu, passes Kanjirampara and cross Killi
River at Maruthankuhy.
„ In Zone IV, no work has yet commenced.
g) Block F and G. The areas within these blocks are not serviced by the sewerage system. Provision
of the major part of these blocks is proposed under the Theerapathanam Urban Development
Project (TUDP). The TUDP covers 20% of the Municipal Corporation area (25 sq. km) and
stretches along 16.5 km of the coast from Akkulam to Kovalam – TUDP serves 150,000 persons
(with 12 out of 37 identified slums in Thiruvananthapuram situated in the TUDP area). The
project aims to intercept 29 sewage outlets entering the Parvati-Puthunar (PP) canal and hence
reduce the pollution of PP Canal. The sewage generated from this area as well as from existing
sewerage system in the city will be treated in the centralized STP at Valliyathura. A separate STP
had been proposed for arresting and treating the sewage flowing into Akkulam Lake from the
North East Area of the city, although the alternative is to take all flows to the STP at
Valliyathura.

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9.2.2 Existing Sanitation Situation

In addition to the sewerage system, a large number of households discharge sewage through
individual sanitary facilities; approximately 8% of total households do not have access to safe sanitary
disposal.

Table 9-4: Overall Sanitation in MC Area (Census 2001)

Item Units % Households
Total HH as per 2001 census 198,000 -
HH with WC Latrines 126,000 63.5
HH with Pit Latrine 39,000 19.9
HH with other Sanitary systems 17,000 8.5
HH without any Latrine 16,000 8.2

According to data available with Department of Town Planning, in 1996, Thiruvananthapuram houses
37 slums covering an area of 97 Ha; about 30,000 persons reside in 6,500 dwelling units. Only 24% of
city’s slum population has access to suitable sanitation see Table 9-5.

Table 9-5: Sanitary Conditions in Slums (KUDP 1994)

Item Units
No. of Households 6,500
HH with Septic Tanks 1.6%
HH with Twin Pit PFL 0.4%
HH with Single Pit PFL 4.3%
HH with pit Latrines 38.6%
HH connected to Sewer 3.2%
HH without any Latrine 52%

Sanitary practices indicate that in slum areas the majority of houses have pit latrines. Households not
accessing latrines use public latrines or resort to open defecation. While Twin Pit Pour Flush Latrine
(TPPFL) is a recommended option, requisite space is invariably unavailable. According to data
available from the Kerala Urban Development Project (KUDP) in 1994, 30% of slum households
lacking latrine facilities also do not have space to build a latrine.

The centrally sponsored National Slum Development Program (NSDP), implemented through
Community Development Societies (CDS), emphasizes infrastructure development including
construction of new houses, water connections, construction of Twin Pit Latrines, etc. Under this
program, 25,000 families were identified for assistance. The basic sanitation assistance provided in
the form of Twin Pit Latrines is as follows:

„ 3,200 families have so far received the assistance for building the TPPFL at the cost of Rs.2,600
including a Rs.300 beneficiary contribution; and
„ Immediate need is for 5,000 more families especially in the coastal areas.

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9.2.3 Service Adequacy, Key Issues and Needs Assessment

Under Ground Sewerage System
Based on a present gross water supply of 200 MLD, 80% or 160 MLD of sewage finds way into the
present sewerage system, storm water drains and watercourses. The existing sewage collection and
transportation system is overloaded and due to constant malfunctioning of sewage pumps, sewage is
discharged into local streams, particularly during periods of wet weather, causing heavy pollution.
The KUDP study (1994) indicates that the existing sewerage system requires rehabilitation to
effectively collect and dispose sewage into the sewage farm for appropriate treatment. In order to
improve environmental sanitation conditions in the city, the sewerage system should be extended to
serve areas originally planned but not connected i.e., parts of C, D and E block and coastal areas
which are not only congested but polluting the Parvathy Puthanar canal through 29 outfall sewage
drains. The extent of expansion is based on sewage demand / loadings.

Sewage Pumping Stations

The pumps and machinery (mechanical screens) in the existing pumping stations are well beyond
their design age and need immediate replacement. Key features comprise:

a) There are no stand-by diesel generating (DG) sets, except at Enchakkal Pumping Station, to run
pumps during power failure – this failure in pumping increases the chances of sewage overflow
into nearby drains. The new pump house at Kuriathy Pumping Station has a DG set of 175
(KVA) capacity but of insufficient capacity to run even one out of three 315 HP pumps.
b) Bypasses from most pumping stations are connected to nearby drains and watercourses, thereby
causing pollution.

Table 9-6 indicates the quantity of sewage pumped to the STP through four major pumping stations.
From the table it is evident that less than 55 MLD of sewage actually reaches the sewage farm; though
the installed pumping capacity is greater than the present quantity of sewage pumped.

Table 9-6: Pumping Details of Existing Pumping Stations

Details of Pumps Pumps Working Duration Total
Pump House Capacity Discharge Nos Capacity Discharge Nos (Hrs) Discharge
(HP) (LPS) (HP) (LPS) (MLD)
220 200 1 - - - -
Kuriyathy Existing- 220 200 1 - - - -
Old pump House 200 200 1 - - - -
20 NA 2 - - - -
New Pump House 315 3 - 346 2 15 37
80 232 2 80 232 1 11 9
Pattoor
20 76 2 - - - -
50 65 2 40 65 1 14 3.3
60 45
Enchakkal
40 2
20 2 - - - -
120 136 2 120 136 1 6 2.9
Kannamoola
60 NA 1 - - - -
Total 52.8

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Pressure Mains
The pressure mains carrying sewage to the existing sewage farm are:

a) From Kuriathy Pump House (old) to stilling chamber of STP: 500 mm CI (3 Km);
b) From Kuriathy pumping station (new) to stilling chamber of STP: 900 mm CI (3 Km);
c) From Pattoor pumping station to stilling chamber of STP: 350 mm CI (approx. 4 km);
d) From Enchakkal pumping station to stilling chamber of STP: 350 mm CI (approx. 1.5 km); and
e) From Kannamoola pumping station to stilling chamber of STP: 400 mm CI (approx. 4.5 km).

All pressure mains except at Kuriathy Pumping station are relatively old and need replacement. Two
rising mains at Kuriathy Pumping Station need to be joined at the premises itself for avoiding the
duplication of pressure mains carrying the sewage to the sewage farm.

Sewage Farm
Based on preliminary assessment of the system, it is estimated that the farm receives about 55 MLD
of sewage. An exact estimation of flow reaching the farm is unavailable due to the following reasons:

a) Absence of flow measuring devices in the farm and pumping stations;

b) The flow is calculated based on pump design capacity and pumping hours, which is probably
inaccurate as these pumps are old (> 30 years) to represent the original design discharge. Because
of the old pumping machinery, total amount of sewage pumped from these pumping stations may
be less than that currently estimated;
c) It is unlikely that all sewage generated from the catchment areas of these pumping stations
reaches the sewage farm due to the operation of sewage overflows at pumping stations and along
some stretches of sewers; and
d) As there are 75,000 household connections, the present system is expected to serve
approximately 375,000 persons. On commissioning of the on-going water supply project funded
by Japan Bank for International Cooperation (JBIC), the sewage generation is expected to
increase to 70 MLD due to increase in water supply.

Present sewage treatment at Valliathura is in the form of sewage farming, which comprises sewage
dispersal over open fields. Alternative treatment process for an upgraded treatment process include
technologies such as Waste Stabilization Pond (WSP), Activated Sludge Process (ASP), Upflow
Anaerobic Sludge Blanket (UASB), Fluidized Aerobic Bed (FAB), etc. These have been evaluated in
the local context by comparing construction, land and operation and maintenance costs and area
requirements as included in Volume 6 – Technical Analysis, Section B. UASB and FAB emerge as
the most viable options.

Operation and Maintenance

Present O&M infrastructure of KWA is inadequate to operate and maintain the existing sewerage
system; KWA needs additional sewer cleaning machines to effectively maintain the sewerage
network.

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a) The KWA field sewerage sub-division at Pattoor incurs an annual expenditure of Rs.24 million.
Rs.15 million is meant for general maintenance of pumps and machinery and Rs.9 million for
salary of the O&M staff. The average electricity consumption is 450,000 units/month. The KWA
head office is responsible for settlement of electricity charges with the Kerala State Electricity
Board (KSEB) directly.
b) Existing O&M infrastructure owned by KWA is as follows:
„ Bucket type sewer cleaning machines (3 Nos.) – in working condition; and
„ Jetting and suction type sewer cleaning machines (1 no) – in working condition.

9.2.4 Project Identification

Design criteria
The following Design criteria are considered for adopting suitable sewerage systems:

a) Adequate Water Supply. The water supply provisions of 200 Lpcd guaranteed through on-going
JBIC funded project would be adequate to develop sewerage system as sewage discharge greater
than 100 Lpcd (as per CPHEEO guidelines) is essential for self-cleansing velocities in small
diameter sewers. The high water supply levels also necessitate the provision of sewerage to avoid
heavy pollution of storm water drains/water courses both within the city and coastal areas,
resulting from sewage outflows into drains/water bodies;

b) Urban Development Strategy. Consideration of potential future growth areas under Town
Planning Strategy;
c) High Population Density and Potential Growth Areas. Areas that are densely populated, i.e.
coastal areas are considered for coverage through the sewerage system;

d) General Environmental Improvement. Considering unhygienic conditions due to overflow of

sewage into roadside drains and pollution of nearby water bodies;
e) Space for Sewer Construction. A minimum width of access is required to lay sewers both during
construction and for O&M; thereby satisfying all environmental guidelines. The pockets with low
affordability, slum areas and areas facing difficulty in sewer construction will qualify for low-
cost on-site sanitation arrangements;
f) Sewage Treatment. The Sewage Treatment Plant to be constructed in modules for easy replication
to meet increasing future sewage loads. However, the land should be acquired for ultimate
requirements;

g) Land. The availability of sufficient land for future expansion of Sewage Treatment facilities; and

h) Institutional capacity. To be adequate in skills to successfully execute, operate and maintain

sewerage facilities.

Long Term Sewerage and Sanitation Requirements

Based on preceding assessment and design criteria, the following sewerage schemes are identified for
Thiruvananthapuram. The schemes can be implemented in a phased manner as described below:

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a) Rehabilitation of the Existing Sewerage System:

„ Testing and replacement of some pumps and pressure mains;
„ Construction of generator house and installation of DG sets in existing pumping stations to
ensure continuous pumping of sewage to the proposed STP and avoiding overflows into
drains;
„ Provision of sewer cleaning machines; and sludge suction machines in non-sewered areas;
and
„ Replacement of pump panels and accessories.
b) Extension of the Sewerage System in Coastal Area (as part of TUDP)
„ Intercepting sewage outfall drains into PP canal by laying sewers on both sides of PP Canal
in Coastal Area; and
„ Laying of lateral/branch sewers, property connections and construction of the pumping
stations to lift the sewage to the Sewage Treatment Plant at Valliyathura.
c) Construction of Sewage Treatment Plant at Valliyathura;

Based on the analysis and needs assessment, there is a need of a sewage treatment plant, the capacity
of which is assessed and presented in Table 9-8:

Table 9-7: Zone wise requirements for Sewage Treatment

Zone Area Population STP STP area STP Location

covered, capacity, requirements,
sq. km MLD* Ha
Existing sewerage system in
Valliyathura
wards-5,8, 13-, 15-26,28- 45 sq. km 350,000 90 7.5
Sewage Farm
36,39-41-47, 56,58-60
Coastal area wards-61-63, Valliyathura
20 sq. km 150,000 30 2.5
67-74, 76-80 Sewage Farm
Valliyathura
Total 65 sq. km 500,000 120 10
Sewage Farm
* includes domestic sewage (100 MLD), Commercial + Inst. + Industrial (15 MLD), Groundwater infiltration-5MLD

120 MLD FAB based Sewage Treatment Plant for treating the sewage generated from existing
sewerage system and sewage from coastal area .is proposed at Valliyathura This would include
screening, de-gritting, secondary biological treatment, sludge treatment and disposal. Mechanized
sludge dewatering units are proposed to be provided to effectively dry the sludge before disposal. The
preliminary designs along with site layout of 120 MLD STP is given in Volume 6 – Technical
Analysis, Section B. Since only 25 acres of land would be required for the construction of the plant,
the remaining land could be used for continuing the existing dairy fodder growing operations and
using part of the treated effluent for irrigation with dried sludge used as soil conditioner.

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d) Construction of the East Sewerage System in Blocks C, D and E (as part of KUDP-1994).
„ Underground sewers, property connections and appurtenances;
„ Adding new gravity sewer lines and man holes in Blocks C, D and E; and
„ Construction of pumping stations, installation of pumping machinery and accessories.
e) Extension of the Sewerage System in North West Areas of MC: The sewerage system would be
extended to this part of MC covering an area of 32.5 sq. km with a population of 115,818. Wards
1-11, 13-14 will be covered under this zone; and
f) Extension of Sewage Treatment Plant – 20 MLD at Valliyathura for North West areas.

Sub-Project Component Summary

Based on city priorities and capacity for implementation within the project timeframe sub-project
component proposed are summarized in Chapter 10, which include the following:

„ Rehabilitation of the Existing Sewerage System (popn. 350,000);

„ Extension of the Sewerage System including house connections in Coastal Area (popn. 150,000);
„ Construction of 120 MLD Sewage Treatment Plant at Valliyathura; and
„ Sewerage and sanitation maintenance equipment.

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9.3 Stormwater Drainage

9.3.1 Existing Situation, Service Adequacy and Key Issues

Thiruvananthapuram receives a very high average annual rainfall of over 1,800 mm. The city has
undulating topography with ground level rising from the MSL up to 75m. Undulated topography,
porous soil and presence of watercourses facilitate natural drainage of storm water in the city. Two
major rivers, viz Karamana and Killiar along with some small streams flow through the city area. The
city has a large network of storm water canals and drains. However, most of the storm water drains
and canals in the city carry semi-treated and untreated sewage and have been depositories for solid
waste. The quantitative description of the existing drains in the city is provided in Table 9-8.

Table 9-8: Thiruvananthapuram City Drainage Network

Description of the Item Quantity (Km)
Total length of the drains 722
Total length of covered pucca drains 290
Total length of uncovered pucca drains 432
Total length of Pucca drain 722
Source: Data obtained from the Thiruvananthapuram Municipal Corporation.

Though the natural topography of the city in

general has adequate slope to drain out the storm
water, the poor maintenance of the major drainage
outlets of the city and frequent blockage of certain
important drains within the city are mainly
responsible for local flooding and water logging.
Parvathy Puthanar canal is the major recipient of
the storm runoff of the city. Water logging
(localized flooding) occurs in certain areas of the
city resulting in inconvenience to the city
dwellers. The areas that are mostly subjected to water logging are Thampanood, East Fort, Kuriathi,
Sreevaraham Market, Inchackal Junction, Kanaknagar. Normally, water-logging takes place during
the period of high intensity rainfall and/or for extended duration. During the monsoon water logging
in these areas occurs 5-6 times with water depth of 0.6m to 1.2m in some areas. Water logging
persists for 12 hours to 24 hours in the central part and for 3 to 4 days in the southern part of the city.
The main reasons identified in the adequacy assessment that cause local flooding in the city are:

a) Reduction of carrying capacity of the existing canals/drains due to heavy silt deposition,
discharge of solid wastes in the canals/drains and growth of vegetation in the canals/drains and
encroachments;
b) Inadequate cross-section in certain culverts that obstruct normal flow in the canals/drains;
c) Poor condition of some of the existing culverts resulting in overflow and flooding of adjoining
areas;

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d) About 60% of the storm-water drains in the city are uncovered. These drains are more prone to
discharge of solid wastes and growth of vegetation resulting in reduction/stagnation of normal
flow;
e) Missing links in the existing drainage network;
f) Lack of awareness and public responsibility regarding disposal of wastes; and
g) Lack of coordination and maintenance of the existing canals and storm water drains by the
responsible agencies.

Operation and Maintenance (O&M): The existing city drainage system lacks proper maintenance.
The Thiruvananthapuram Municipal Corporation (TMC), State Irrigation Department and Public
Works Department are jointly responsible for operation and maintenance of the existing drainage
system of the city. Type of drains vis-à-vis agencies responsible for O&M are tabulated in Table 9-9

Table 9-9: Agencies Responsible for Thiruvananthapuram City Drainage

Type of Drain/Canal Agency Responsible
Drains along internal roads Thiruvananthapuram Municipal Corporation
Drains along the National Highways PWD (National Highways)
Drains along State Highways, District Roads & other major roads PWD (Road & Bridge)
Drainage Canal & other water bodies State Irrigation Department

Better coordination among these agencies is essential for maintenance of the overall drainage system.
Lack of public awareness is also a factor for poor functioning of the existing drains/canal. Citizens
should be made aware of the fact that indiscriminate disposal of the wastes into the waterways not
only create drainage problems, but also detriment to their health and hygiene. Separation of city
wastes (both liquid and solid) from the storm water flow is very important for the improvement of the
drainage system of the city. These aspects will be included as part of a Project public awareness
program.

9.3.2 Drainage Component Identification

The following projects have been identified based on the service inadequacy with an intention to
minimize / alleviate the flood problem of the city:

a) Detail study of the city drainage system and preparation of Drainage Master Plan: No detail
study has been conducted so far to cover the drainage system of the entire city. This results in a
lack of adequate information to deal with the city’s drainage problems. Some studies have been
carried out for the city drainage but these cover only part of the city. A comprehensive study of
the entire city drainage system is therefore essential to provide the following:
„ Preparation of a contoured drainage base map of the city;
„ Preparation of storm water drainage inventory for easy identification of the status of the
existing drains/canals and their catchment areas;
„ Comprehensive database and map for better planning and management of the city drainage;
and

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„ Identification of missing links and prioritization of works.

As part of the Detail Design a study of the city drainage system will be undertaken and a drainage
master plan prepared to determine the short and long-term drainage proposals for the city.
b) Rehabilitation of existing culverts, construction of by-pass culvert, silt pits etc. and
widening of Pazhavangadi Thodu (main canal): Following components have been identified
requiring attention:
„ Reconstruction of Culvert at Pazhavangadi including rising of the road (Approx. length
70m);
„ Reconstruction of Culvert at Thakarapambu Junction (Approx. length 20m);
„ Construction of a bye-pass pipe culvert (Approx. length 150m) parallel to the existing
Railway Culvert at Thampanoor, which will carry additional floodwater into the downstream
portion;
„ Construction of Trash racks at Thampanoor and Pazhavangadi in the main canal
(Pazhavangadi);
„ Construction of silt pits with gratings at Putheriknadam channel;
„ Complete fencing and covering the main canal in the main market adjoining KSRTC Bus
Stand (Approx. length 300 m), widening of Pazhavangadi Thodu from Thakaraparambu up
to Uppilammodu Bridge (Approx. length 300 m); and
„ Construction of the RCC drains on both side of the road with covered slabs & screening
arrangements from Pazhavangadi towards East Fort on Kovalam road to avoid the flooding
in East fort area (Approx. length 600m);

Most of the flood prone areas in the central part of the city including Thampanoor, Pazhavangadi,
Thakaraparambu, part of East Fort, Kannamoola, Pettah and Akkulam, covering about 30% of the
city population, will be benefited from this work. Besides minimization/eradication of water
logging problems, other benefits that could be accrued from this work are reduction of discharge /
dumping of wastes into the main canal (due to fencing), ensuring actual width of the canal (by
side protection, fencing and widening). Preliminary designs of the works proposed under this
scheme are shown in Volume 6 – Technical Analysis, Section C.

c) Improvement of Parvathy Puthanar Canal and its feeder Canals: Parvathy Puthanar, an open
artificial canal, runs through the heart of the city and discharges wastewater into the sea through
Vely Pozhy and Poonthura Pozhy. The canal is a part of T.S. Canal. The Parvathy Puthanar canal
along with its feeders is the major recipient of the storm water runoff from the southern part of
the city. Kannammoola Thodu, Thekkenekara Canal, Kariyil Thodu and Karamana River feeder
canal to T.S. Canal are the major feeders of Parvathy Puthanar main canal. The length of
Parvathy Puthanar canal from Vely Pozhy to Poonthura Pozhy is about 10 km. Only about 2 Km
of the canal sides are protected. About 200 families have encroached in the Parvathy Puthanar
Canal in its Moonnattumukku-Vazhavila stretch. Resettlement and rehabilitation of these families
would be required before undertaking the improvement works for the canal. Following necessary
work has been identified:

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„ Providing fencing and laying boundary stones on either side of Parvathy Puthanar Canal
from Moonnattumukku to Vazhavila in order to protect the actual width of the canal, avoid
further encroachment and direct disposal of wastes in to the canal (Approximate length 16
km.);
„ Cleaning and desilting for the entire length (4.5 Km), side protection (600 m) and side
fencing (1.20 Km) of Thekkenekara feeder Canal including provision for 3 numbers of silt
trap to increase its carrying capacity and betterment of flow;
„ Desilting for entire length of 5.0 km and renovation (side protection for 1.2 km, side fencing
for 500 m and cover slab) of the feeder canal “Kariyil Thodu” to increase its carrying
capacity and minimizing flood in the adjoining areas;
„ Side protection and renovation of the feeder river of T.S. Canal from Moonnattumukku to
Poonthura on Karamana River to protect river banks from erosion and minimize flood
(Approximate length 4.6 Km);
„ Improvement and side protection of the T.S. Canal from Poonthura to Moonnattumukku in
Poonthura area to protect the canal bank and minimize flood (Approximate length 2.3 Km);
„ Improvement and side protection of the T.S. Canal in Edayar Island to avoid flooding in the
Edayar Island (Approximate length 2.3 Km.); and
„ Side protection works along main canal from Kannammola to Akkulam (Approx. length 5
km.).

It is envisaged that with implementation of the above work, the southern part of the city will have
a direct benefit. The flood prone and waterlogged areas that will be benefited from the work are
Ambalathura, Kamaleswaram, Muttatharta, Srivaham, Poonthura and Edayar Island affecting
about 25% of the city population.

Fortunately, desilting of the Parvathy Puthanar canal from Poonthura to Akkulam has been taken
up under a different project and thus the above work has been excluded from KSUDP.

d) Improvement of other secondary drains: The following components are identified under this
sub-project:
„ Covering 20% of existing open roadside drains with provision of manholes/ removable cover
(Approximate length 87 Km); and
„ Provision for improving existing drains by constructing missing links, rehabilitation of
existing drains including de-silting of the drains as required.

The above works will improve the existing city drainage network system as well as minimizing
flood/water logging problems in the East Fort area. Based on city priorities, any requirement for R&R
and capacity for implementation within the project timeframe the drainage component proposed is
summarized in Chapter 10.

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9.4 Solid Waste Management

This section analyses the solid waste management system prevailing in Thiruvananthapuram in terms
of collection, transportation, treatment and disposal. The situation analysis addresses both the
qualitative and quantitative aspects in terms of process, mechanism, tools and equipment used and
other related issues. Deficiency analysis is undertaken, comparing the prevailing situation with that of
various standards/norms available. Finally, issues and problems related to various aspects of solid
waste management are summarized for necessary improvement measures and to determine tentative
cost estimates.

9.4.1 Present Situation Analysis and Key Issues

Solid Waste Generation
The residents of the city generate solid waste at an estimated average rate of 365 grams per capita per
day. According to Census 2001 the population of Thiruvananthapuram was 0.74 million; based upon
this statistic the estimated total waste generated is 272 MT/day. Table 9-10 indicates source-wise
solid waste generation within the Municipal Corporation.

Table 9-10: Source-Wise Solid Waste Generation in Thiruvananthapuram (2001)

Sl. Sources of Waste Generation Waste Generation Composition (%)
No. Per day (MT)
1. Households 164.09 60.00
2. Shops 11.79 4.33
3. Hotels and Restaurants 27.21 10.00
4. Hospitals 1.81 0.66
5. Tea Shops 0.90 0.33
6. Workshops 0.90 0.33
7. Markets 36.28 13.34
8. Street Sweeping 1.81 0.66
9. Construction Works 9.07 3.33
10. Marriage halls & temples 18.14 6.67
Total 272.00 100.00

Waste Composition
Recent studies7 on solid waste management for Thiruvananthapuram provide details on the physical
and chemical composition of waste. Table 9-11 and Table 9-12 summarize the physical and chemical
composition of wastes generated in the city.

7
Study on Solid Waste Management: Preparation of an Action Plan and Establishment of an Environmental Information System for
Thiruvananthapuram City by Mr. Babu Ambat, Kerala Research Program on Local Level Development, Centre for Development Studies,
Thiruvananthapuram, 2000 and Study carried out by LEA Associates and MDP Consultants for Theerapatham Urban Development Project,
Thiruvananthapuram, March 2004.

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Table 9-11: Physical Composition of Wastes Generated in Thiruvananthapuram

Physical Households (%) Markets/Commercial Hotels & Hospitals (%)
Composition Areas (%) Restaurants (%)

Paper 10.04 13.27 5.61 16.42

Glass 1.63 2.26 6.66 14.09
Textile 2.68 2.53 1.34 10.03
Plastic 5.59 13.29 3.64 9.13
Wood 1.38 0.46 1.24 0.15
Metal 1.75 3.64 0.54 1.338
Organic Waste 51.50 42.09 66.86 39.45
Ash 4.06 1.61 5.5 0.96
Sand 12.84 8.87 5.49 3.00
Misc. 8.01 11.15 3.03 5.48
Total 100.00 100.00 100.00 100.00

Table 9-12: Chemical Analysis of Wastes Generated in Thiruvananthapuram

Sampling Area Nitrogen (%) Phosphorus (%) Potassium (%) Calcium (%)
Chalai market area 0.5 0.2 0.5 28
Manacaud jn. 0.6 0.2 0.3 30
Petty shop 0.2 0.1 0.2 25
Hotel in Statue jn. 1.2 0.5 0.8 36
Residential colony 0.4 0.2 0.5 26
(Residential colony
) 0.3 0.2 0.4 25
(Palayam Market
) 1.5 0.1 1.5 36
Vikash Bhavan Area 0.6 0.4 0.6 31
Street Sweeping 0.6 0.3 0.7 30
Lenin Nagar Palayam 0.4 0.2 0.5 26
General Hospital 0.8 0.3 0.7 30
Prasad clinic 0.6 0.2 0.6 25
Market Depot, 1 0.8 1.2 35
Market, Chalai 1.2 0.9 1.4 35
Market, Peroorkada 0.8 0.2 0.6 32
Market, Pettah 0.4 0.2 0.4 25

Street Cleansing
Under the Kerala Municipalities Act 1994, road/street sweeping and drain cleaning are obligatory
responsibilities of the Municipal Corporation (MC); the MC shall also arrange to collect and dispose
solid waste generated in the city. The entire area under the administrative jurisdiction of the
Municipal Corporation is geographically divided into 81 wards; 867 municipal sanitary workers and
70 drivers are deployed in the whole city under the supervision of a Chief Sanitary Inspector and two
Sanitary Inspectors. The Chief Health Officer heads the whole team.

The sweepers of the MC are provided with tools and equipment like brooms made of coconut leaves,
wheelbarrows / push carts and shovels for street cleansing operations. The first shift starts at 06:00
hours when conservancy workers sweep the streets, clean drains, collect waste from small open points

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and transport waste by pushcarts or wheel barrows to the nearest secondary open collection point.
Apart from regular sweeping of the roads some important stretches are swept early in the morning
before the regular sweeping commences. These particular stretches are called ‘Litter Free Zones’ and
cover a length of 10 km. Sweeping operations on these stretches start at 03:00 hours and continue till
06:30 hours. Health Inspectors of the concerned circles oversee the sweeping process in litter free
zones. With a total road length of 2,586 km, a major portion of sanitary worker's time is spent in street
sweeping operations.

Primary Collection and Storage

In Thiruvananthapuram, a large section of households do not practice segregation of recyclable waste
at source. It appears that hotels, restaurants and other commercial establishments store and segregate
their waste at source.

City residents tend to leave / dispose their

household waste at the nearest open temporary
storage point in the morning, which is then
collected by the Corporation workers. In addition
to Corporation workers there are three major
private operators namely Poorna Agencies, SOMA
(Social Organization for Mental Health Action)
and SB Clearline Services involved in primary
collection of solid waste in Thiruvananthapuram.
Eight pig farmers collect food waste from 150
establishments comprising luxury hotels, other large hotels and restaurants of Thiruvananthapuram.
Municipal workers undertake door-to-door waste collection from shops, restaurants, hotels and
temples.

Box 1: House-to-House Waste Collection in Thiruvananthapuram

Poorna Agencies is the largest operator of all the three private operators involved in house-to-house collection
of waste in Thiruvananthapuram. Established in 2001, the agency collects waste from 1,500 households of 60
residential associations with the help of 30-member collection crew. The collection crews collect the waste in
tri-cycles from households and place the waste in bins placed at specified locations in residential areas. A mini
lorry and an auto collect the waste from these bins and transport it to the site at Valiyarathala near Nemom.
The workers of the agency segregate the organic and inorganic components of the waste. The organic waste
is used as manure for agriculture land; inorganic wastes such as plastics are burnt by the agency. Other inert
materials are disposed off with a suitable soil cover. The agency charges Rs.30 per month from households
covered by this service.
From 1st March 2003 the TMC has initiated a scheme for door-to-door collection of garbage with support from
the Kudumbashree covering 1,500 households and spread over five wards. TMC had selected five wards for
implementing the scheme on a pilot project basis. The wards selected are Medical College (East), Medical
College West, Gowreesapattom, East Fort and PTP Nagar.
Initially five units were formed. Each unit consists of 15 women identified from Neighborhood Groups (NHGs)
of the concerned ward constituted under the Kudumbashree. Each unit is divided into three groups of five
members each. Each group is provided with a three-wheeler tipper (pick up van with hydraulic system). The
unit members are provided necessary training to drive the vehicles. The units function in one shift i.e., from
14.00 hours onwards. After collecting the household waste they normally segregate and dispose the waste at
the municipal temporary storage points.

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Thiruvananthapuram MC provides three types of temporary waste storage8 points within its
jurisdiction: (i) JCT mechanical loader type steel bins; (ii) small steel bins; and (iii) open storage
points.

„ JCT mechanical loader type steel bins are made of steel hexagonal shaped with height of 2 m
and base length of 1.5 m with a volumetric capacity of 1 cu. m. Altogether there are 25
mechanical loader bins located on main roads and important commercial/administrative areas.
„ Small bins are present in large numbers. These bins are made of steel and hexagonal in shape
with waste storage capacity of 0.10 cu. m. These bins are mainly located in residential areas.
Most of these bins are in a dilapidated condition and unfit for use.
„ In addition, there are open storage points predominantly spread all over the city. These are open
places for waste collection used by the conservancy staff for temporary storage of waste from
households, street sweepings and drain cleanings.

Waste Transfer Stations

There are at present two waste transfer stations (dumping yards) within the city viz., Palayam and
Chalai, primarily used for market wastes. The garbage is removed between 19:00 hours to 21:00 hours
from the temporary waste storage points and transfer points. Previously, waste was removed from
15:00 hours onwards but after the closing of Manacaud dumping yard cum transfer point since 14th
July 2004 the pick up vehicles now carry the waste directly to the disposal site from the temporary
storage points. At night, waste from the two dumping yards is also taken to the disposal site at
Vilappilsala. Details of the waste transfer stations are given in Table 9-13.

Table 9-13: Details of Transfer Stations in Thiruvananthapuram

Transfer Station Accumulated Waste
Length Width Area L, m W, m H, m Volume Quantity,
2 3
(m) (m) (m ) m tons
Chalai 15 9 135 9 4 2 72 36.00
Palayam 30 18 540 18 3 1.5 81 40.50
1.Density Factor of 0.5 tons/m3 has been adopted to calculate quantity of waste accumulated
2. Accumulated waste details are observed values at the time of field investigation.
Source: Field Investigations by IDFC.9.

Secondary Collection and Transportation

The MC’s Health Department has a fleet of 82 collection vehicles and five other equipment items
(including jeep and vacuum tankers). The loading and unloading operations are both mechanized and
manual. Of the total 87 vehicles, 30 vehicles are not operational and are at the garage for major
repairs. Only 29 tipping lorries and two tractors are involved in primary and secondary collection of
waste on a typical day. The remaining two vehicles and 19 tractors are in idle condition and have been
put up for auction. Approximately 70% of the waste generated is collected and transported for waste
treatment and disposal.

8
Thiruvananthapuram Municipal Corporation, and Field Observations, July 2004.
9 Integrated Solid Waste Management Plan for Thiruvananthapuram: Collection and Transportation Plan, Government of Kerala for
Thiruvananthapuram Municipal Corporation.

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There is no routine planning for the collection and transportation of waste from different parts of the
city. Vehicles collect waste from open storage yards/dustbins as and when required, especially in
residential areas. These sites are often attended to more on the basis of complaints received or
pressure brought on local staff rather than following the system of regular removal of waste from the
storage points. Most open storage points/dustbins are not cleared on a day-to-day basis. The garbage
is removed from 19:00 hours to 21:00 hours.

TMC does not have its own workshop facilities. This aspect further aggravates the problem of
frequent breakdown and malfunctioning. Vehicles are usually sent to specific workshops for
maintenance on a contract basis within Thiruvananthapuram.

Waste Treatment and Disposal

The MC has one solid waste disposal site located at Vilappilsala Panchayat, 16 km east of the city and
has capacity for waste disposal till 2035 (See Figure 9-3). The MC acquired 12.35 Ha of land of
which 4.25 Ha has been provided to M/s POABS Envirotech, the Build-Operate-Transfer (BOT)
waste treatment operator appointed for composting waste. Presently only 20% of the land transferred
to the BOT Operator (about 1.6 Ha) is being used effectively because of the undulating terrain. The
approach road is bituminous topped and in good condition. The existing compost plant is designed to
handle 300 MT/d and can be augmented to 500 MT/d.

The plant has sufficient capacity to handle the biodegradable portion of the total solid waste generated
in the city. However, due to non-segregation of waste at source, the BOT Operator has to segregate
the waste twice or thrice before it can be biologically processed.

Sanitary Landfill. At present proper sanitary land filling is not practiced at the disposal site. The
rejects of the plant are dumped along the valley slopes. Recently, on behalf of the TMC the
Theerapatham Urban Development Project invited detailed proposals from Operators for the
development, operation, maintenance and transfer of an engineered sanitary landfill facility at
Vilappilsala on a BOT basis. Bid evaluation is in progress (October 2004).

Bio-Medical Waste. There are 159 government and private clinics, hospitals and nursing homes with
8,639 beds in Thiruvananthapuram City; of these 70% are private hospitals comprising of around 35%
of the total bed strength. Medical College Hospital is the largest public medical institution with 1,439
beds.

Table 9-14: Details of Hospitals and Other Facilities in Thiruvananthapuram

Category Number Total Beds
Private Clinics, Hospitals and 110 3,008
N i H
Medical College Hospital 1 1,439
Other Government Hospitals and 48 4,192
Total 474 8,639
Source: Thiruvananthapuram Municipal Corporation, July 2004.

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9.4.2 Component Preliminary Design

Design Assumptions
Deficiency analysis is carried out based on the norms/standards prescribed in the ‘Manual on
Municipal Solid Waste Management, Ministry of Urban Development and Poverty Alleviation,
Government of India, New Delhi, May 2000’ (referred to as “the Manual”). Infrastructure need was
identified for: (i) primary collection and storage; (ii) secondary collection and transportation; and (iii)
waste treatment and disposal.

Table 9-15 summarizes the solid waste management infrastructure need for Thiruvananthapuram and
is based on the following assumptions:

a) Waste Generation. While the Manual prescribes a waste generation norm of 250 grams per capita
per day (gpcd), waste in Thiruvananthapuram is generated at 365 gpcd. For estimations, a waste
generation rate of 250 gpcd is assumed; waste generation is expected to increase at a
compounded annual growth rate (CAGR) of 1.41%10. Based on the above-mentioned generation
and growth, daily waste generated at the city was determined for 2011, 2021 and 2031; for
current analysis, requirement in 2011 is determined.
b) Street Cleansing. Sanitary workers will be supplied with adequate tools and equipment for street
and drain cleaning purposes, in accordance with the Manual. The following pattern is assumed:
(i) market areas will be swept at least twice daily and other areas will be swept once daily; (ii)
commercial waste will be collected after street sweeping beats; and (iii) drains (less than 60 cm
deep) will be cleared at noon. Burning waste in the street is strictly prohibited under the Kerala
State Pollution Control Board (KSPCB) regulations and it is assumed that this practice will be
discontinued.
c) Waste Storage. It is recommended to transit into a two-bin system of waste segregation and
storage at source – for organic and inorganic waste. However, this transition will be gradual and
an awareness program is imperative during the detailed design phase of the project to facilitate
this transition. The following storage system is assumed: (i) household waste will be preferably
stored in litter bins, which will either be disposed into street side dustbins (100 kg capacity
spaced at 500 m and one dustbin for 250 persons) or collected through the door-to-door collection
system – it is assumed that households generate 65% of the total waste; (ii) bins of 0.5 cum and 1
cum capacity is recommended for storing trade waste or hotel waste – it is assumed that
commercial establishment, marriage/function halls and markets generate the balance 35% of the
total waste. Storage receptacle capacity is assumed as 1.25 times the waste being generated.
d) Primary Collection. Primary waste collection from households is proposed through auto tippers.
The current system of waste collection practiced by Kudumbashree is recommended. It is
assumed that the auto tippers will collect all domestic waste and dump the waste into 3 cum

10
The consumption of raw materials and finished product by the community is directly proportional to the Gross National Product (GNP) of
the country. Solid waste quantities are directly proportional to the quantity of material consumed and thus the increase in per capita solid
waste quantities would be directly proportional to the per capita increase in GNP. Based on a World Bank study on the relation between
GNP and per capita waste generation, waste generation is expected to grow at a compounded rate of 1.41% per annum.

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dumper placer bins – this collection is either door-to-door and/or from street side dustbins.
Wheelbarrows or pushcarts will also be used for primary waste collection.
e) Secondary Collection. Secondary waste collection is proposed through dumper placer vehicles
and refuse collectors/compactors; 100% waste transfer is recommended with all waste from
receptacles transferred to the treatment/disposal site. Dumper placer vehicles will collect and
transfer waste from the 3 cum dumper placers to the compost/landfill site at Vilappilsala. Refuse
collectors/compactors would collect and transfer waste from the 0.5 cum and 1 cum bins to the
compost/landfill site – market waste from bins at Palayam and Chalai will be through dumper
placer vehicles. Existing trucks will collect waste from peripheral areas. It is also assumed that a
maximum of 50% of current vehicles will be operational in 2011.
f) Fleet Size. Trip patterns and quantum determine the vehicle units, the following is recommended:
(i) auto tippers will make short trips from source to 3 cum bin points making five trips daily and
carrying a maximum of 500 kg per trip (equivalent to 2.5 MT/vehicle/day); (ii) twin dumper
placers will undertake three trips daily and carry 3 MT of waste per trip translating into 9
MT/vehicle/day; and (iii) refuse collectors/compactors will undertake three trips daily and carry 8
MT of waste per trip translating into 24 MT/vehicle/day.
g) Waste Treatment/Disposal. Waste treatment shall comprise composting and landfill. The
following waste composition is assumed for the treatment/disposal process: (i) 40% of the waste
is organic in nature; (ii) 60% of the waste is inorganic in nature; and (iii) 30% of the waste treated
(composted) is a reject. The inorganic waste and compost rejects will be used in the landfill; a
tipper truck of 8 MT capacity will transfer compost rejects to the landfill site.

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Table 9-15: Preliminary Requirement for Integrated SWM System

Sl Item Unit 2004 2011 2021 2031 Gap
No.
2011
1 Population Nos 757,000 787,412 832,530 880,233 30,412
2 Daily Waste Generation MT 189 217 264 321 28
3 Daily Per Capita Waste
Generation Grams 250 276 317 365 26
4 Street Length Km 2,586 2,678 2,815 2,959 92
5 Sanitary Workers Nos 1,091 5,356 5,630 5,918 4,265
6 Waste Storage, Collection and Transportation
Primary Collection and Storage
Pushcarts/Wheelbarrows Nos 58 70 86 58
Dustbins (~ 100 kg) Nos 3,150 3,330 3,521 3,150
Drain Desilting carts Nos 43 53 64 43
Secondary Collection and
Transportation
Utilization Factor for Receptacles
& Vehicles 1.25 1.25 1.25
Design Mass for Receptacles MT 271 330 401 271
Design Volume for Receptacles Cum 543 660 803 543
Waste Containers (0.5 cum) Nos 163 198 241 163
Waste Containers (1 cum) Nos 109 132 161 109
Dumper Placer (3 cum) Nos 118 143 174 118
Auto Tippers for Direct Collection Nos 60 73 88 60
Twin Dumper Placer Vehicles Nos 20 24 29 20
Refuse Collectors / Compactors Nos 4 5 6 4
7 Waste Treatment and Disposal
Tipping Trucks Nos - 2 2 2 2
Compost Plant MT 125 87 106 128 (38)
Sanitary Landfill MT - 156 190 231 156
Sanitary landfill Area/year Ha. 0.381 0.437 0.532
Total landfill area requirement for
2004, 2011 & 2021 Ha. 0.381 2.83 8.15
Area of the existing site* Ha. 8
* sufficient upto 2020

The Infrastructure Development and Finance Company Ltd (IDFC) is currently preparing an
integrated waste collection, transportation and sanitary landfill project for Thiruvananthapuram which
is to be funded under the GoK, Capital Region Development Project. As a result, a Solid Waste
Management component has not been included under KSUDP.

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9.5 Roads and Transportation

9.5.1 Overview
Roads and urban transport proposals under the Kerala Sustainable Urban Development Project
(KSUDP) are based on a Conceptual Road Network Plan (CRNP) prepared for each Project city. The
CRNP was developed based on previous comprehensive traffic and transport schemes (CTTS)
prepared for each Project city. The CRNP also drew from inputs based on discussions with officials
from concerned municipal corporations (MCs), Development Authority, Town Planning Department,
Public Works Department and the Transportation Advisor to Government of Kerala (GoK), Prof. Dr.
NS Srinivasan. The CRNP also takes into consideration the existing network, directions of likely
development, Master Plan/Traffic Study proposals, stakeholder’s suggestions, etc. Details on the
CRNP are provided in Volume 6 – Technical Analysis, Section E.

The Urban Policy and Action Plan-2002 formulated by the Government of Kerala (GoK) aims at
providing basic services and economic growth in urban areas and addressing the transport and road
safety issues. The role of urban transport planning is to integrate other city infrastructure sub-sectors
for achieving the desired development vision and economic growth targets.

This section focuses on roads and transportation improvement requirements in Thiruvananthapuram.

The urban transport sub-sector review includes: (i) a detailed assessment of the existing system; (ii)
review of prevalent operational practices; (iii) identification of critical issues; (iv) review of on-going
development initiatives, including the role of private sector participation; (v) need for additional
infrastructure strengthening to address the identified critical issues effectively; and (vi) identification
of financial implications. The analysis and recommendations made are based on the review of
available secondary data and proposals, site visits, field surveys (to the level required to update
available data and undertake the need assessment and analysis) and discussions with the stakeholders
including the officials of the municipal corporation, Thiruvananthapuram Development Authority
(TRIDA), GoK’s Roads and Transport Adviser, Town and Country Planning Department (TCPD),
Kerala Urban Development Project (KUDP), Public Works Department (PWD), and Kerala Road
Fund Board (KRFB).

Areas Covered. The areas covered under urban transportation include:

a) Road network system comprising of road availability, traffic and travel characteristics (radial
roads, by-passable traffic, central city area, junctions, parking and pedestrian facilities) and road
safety;
b) Street lighting; and
c) Public transport system.

Sub-Project Component Identification. The criteria adopted for identification of component

schemes from a long list are as follows:

a) Need analysis based on demand assessment and supply gap;

b) Urban strategy and existing Development Plans;

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c) Environmental and social impact;

d) Financial viability and project sustainability;
e) Compatibility with committed projects;
f) Project implementation strategy;
g) Exclusion of committed projects under different schemes;
h) Capacity augmentation to major radial roads in the outer city area and major arterial / sub-arterial
roads in the intermediate city area so as to activate the desired dispersal of activities. The road
network concept of ‘ring and radial’ pattern developed in the Capital City Region Road
Development Study is adopted as the guiding factor. The capacity augmentation shall include:
„ Missing links in the identified ring roads of different categories in city road network (Inner
Ring Road, First Intermediate Ring Road, Second Intermediate Ring Road and Outer Ring
Road);
„ Important links providing vital connectivity between the ring roads;
„ Development of Mid-orbital Road; the mid-orbital road which should overcome the city’s
traffic problems and will be within TRIDA boundary; and
„ All major radial roads up to the proposed Mid-orbital Road alignment.
i) Access to major activity centers like tourist destinations, transport terminals, solid waste dumping
/processing site, inter-modal integration and industrial / medical / educational centers;
j) Existing traffic demand corridors with high volume–capacity ratio;
k) Segregation of through traffic from central city traffic by providing appropriate link roads or
bypasses;
l) Road safety aspects covering pedestrian facilities, junction improvements, parking aspects, road
signage, lane marking, etc.; and
m) Design and selection criteria prescribed by the Indian Roads Congress (IRC).

Guidelines for Component Scheme Selection. Apart from the discussions with stakeholders,
schemes proposed in various reports and documents were considered for sub-project component
identification. The documents reviewed comprise:

a) Development Plan for Trivandrum City (1971), Department of Town Planning and Architecture,
Govt. of Kerala;
b) Road Network Plan (2011) under Development Plan for Thiruvananthapuram Development
Authority Area, approved by the Chief Town Planner, TCPD;
c) Development Plan for Trivandrum (2001) by Department of Town Planning, Kerala;
d) Traffic Engineering and Management Study for Trivandrum (1991) under KUDP, Govt. of
Kerala;
e) Comprehensive Traffic and Transportation Study of Thiruvananthapuram Urban Area, (2002),
Department of Transport, Govt. of Kerala; and

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f) KUDP Proposals for Thiruvananthapuram City under Capital Region Road Improvement
Program, (2003).

Traffic Surveys. In order to understand the existing traffic characteristics, update the available past
data and facilitate component preparation, primary traffic surveys were carried out to the limited level
required. They include:

a) Link volume at eight locations;

b) Turning volume count at three junctions;
c) Rail-level crossing survey at two locations; and
d) Speed and delay survey on major road sections.

Detailed road inventory surveys were carried out on selected eight major corridors totaling 39 km, so as to
understand the available road space and its usage, pedestrian facilities, street lighting, drainage, parking
locations, bus stops, etc. Traffic survey locations were selected by eliminating locations for committed
projects. Details of survey analysis results are summarized in the Supplementary Report (Roads and
Urban Transportation).

9.5.2 Existing Roads

Thiruvananthapuram Corporation (MC) has a road network of 2,586 km of which 56% is surfaced. With a
road density of 18 km per sq. km area, the MC has nearly 7% of the urban land area under transport use. In
the TRIDA area, the share of urban land put to transport use is 3%11. This underlies the fact that the outer
city region has less road network.

Table 9-16: Road Network in Thiruvananthapuram City

Road Category Length (Km) % Share

Black Top Road 901 34.84
Metal Road 305 11.79
Concrete Road 560 21.66
Others 820 31.71
Total 2,586 100.00
Source: Directorate of Urban Affairs, Govt. of Kerala.

Of the available road network, a length of 390 km constitutes major roads and is classified as
indicated in Table 9-17 below.

Table 9-17: Classification of Major Roads in Thiruvananthapuram

Road Classification Length (Km) Distribution (%)

Arterial roads 74.9 19.2
Sub arterial roads 103.7 26.6
Collector roads 211.4 54.2
Total 390.0 100.0
Source: 'Draft Report on Short, Medium & Long Term Measures and Feasibility for Integrated Mass Transport System', July 2002 submitted
to Department of Transport (DoT), GoK.

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According to the Comprehensive Urban Transport Study (2002), only 0.3% of the major roads have a
divided carriageway. About 76% have ROW between 7 m and 14 m and 10% with ROW between 14
m and 21 m. About 40% roads were observed to have shoulders up to 2m wide on either side.
Footpaths were inadequate or absent in most of the roads as only 25 km of roads had footpaths.
Generally, the road surface was found to be poor with cracks, rutting and potholes.

Major Issues. Problem of congestion on main roads and intersections is a result of a combination of
factors. Most arterial roads have substandard road geometry and carry a significant amount of
intercity traffic in addition to the local traffic. Prime issues include:

a) Inadequate parking facilities;

b) Inefficient management of road space;
c) Absence of pedestrian facilities; and
d) Poor geometry for the roads connecting important activity centers. For example, the following
roads at tourist destinations (Veli Complex, Shangumugam Beach and Kovalam), industrial
centers (Veli and VSSC) solid waste processing plant at Vilapilsala, and for few major radial road
sections like Ulloor-Kazhakutam section, Manacaud - Thiruvallam section and Thirumala - Peyad
section.

Road Hierarchy and Ownership. Most arterial and sub-arterial roads are under Public Works
Department (Roads and Buildings Division and National Highways Division) with collector roads
under the MC. Each agency is responsible for its own road development and maintenance. Inadequate
maintenance by these agencies has resulted in poor riding quality on most city roads.

The aforesaid issues have resulted in speed reduction during peak-hours on city roads in general. The
average peak-hour speed at the outer city road sections is only in the range of 16 to 23 km per hour
against a desired peak-hour speed of about 30 to 35 km per hour.

Table 9-18: Speed and Delay Characteristics at Selected Links

Peak Hour Off-peak Hour

Sl Length Journey Running Journey Running
Name of the Road Delay Delay
No (Km) Speed Speed Speed Speed
(Sec) (Sec)
(Km/hr) (Km/hr) (Km/hr) (Km/hr)
1 Kazhakoottam-Keshavadasapuram Rd 8.4 18.72 533 27.95 27.77 21 28.31
2 Paruthippara-Ambalamukku Road 2.3 23.46 58 28.07 38.69 13 41.19
3 Nettaym-Shasthamangalam Road 5.2 23.03 84 25.68 26.29 10 26.67
4 Karamana-Peyad Road 8.2 21.92 196 25.65 26.19 56 27.56
5 Venpalavattom-West Fort Road 5.8 16.04 521 26.73 25.13 79 27.77
6 Attakkulangara-Thiruvallam Road 4.7 23.83 96 27.56 38.37 31 41.27
7 PMG-Pottakuzhi Road 1.6 28.80 10 30.32 43.97 6 46.08
8 Venpalavattom-Veli Road 2.4 21.65 110 29.90 27.69 4 28.05
Source: Primary Survey under ADB PPTA (2004).

11
Development Plan for Trivandrum (2001)’, Department of Town Planning, Govt. of Kerala.

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Based on surveys on comparable sections, the average annual traffic growth rate for the city roads
during the period 2000-04 is 5.2%. This growth rate is only indicative as it is based on a few road
sections.

Table 9-19: Traffic Growth Rate during 2000-04

Peak hour traffic
Sl.
Location Annual Growth Rate
No PCU (2000)* PCU (2004)**
during 2000-04 (%)
1 Manacaud Junction 2,918 3,187 2.23
2 Vazhuthakkad-Pangode Road 1,184 1,570 7.31
3 Sasthamangalam-Vattiyoorkavu Road 1,730 2,105 5.03
4 Pettah-Aanayarra Road 588 1,007 14.40
Total of four locations 4,690 5,764 5.22
* - CES Study Traffic Survey in 2000.
** - Primary Survey under ADB PPTA in 2004 (For comparison purpose, PCU values adopted by CES Study was used).

Prospects. Different agencies are involved in planning, construction and maintenance of the urban
road network in Thiruvananthapuram region. Recently, a major thrust on road improvement was
initiated through the Thiruvananthapuram Capital City Improvement Program and other initiatives
(refer Figure 9-4). These include:

a) Under the Capital Region Road Development Program (through Kerala Urban Development
Project and Kerala Road Fund Board under PWD (R&B)), 12 major road corridors covering 42
km are being widened (with improvement to 64 intersections and other road safety aspects) and
another 52 km of access roads are being improved at a cost of Rs.2,000 million;
b) Thiruvananthapuram Development Authority (TRIDA) road improvement schemes
(improvement to Bakery-Poojapura Road, and Manacaud-Attukal-Chiramukku-Kaimanam
Road);
c) PWD (R&B), City Roads Schemes capacity augmentation to Ulloor-Aakulam Road;
d) PWD (NH) scheme of widening Nalanchira-Kesavadasapuram-Plamoodu Section; and
e) Tourism Department schemes - Model Road Scheme for Kesavadasapuram-Pattom Section of
NH 47 and improvements to the access road at Veli Tourist Complex.

9.5.3 Urban Travel Demand and Traffic Characteristics

Link Volume. The average annual daily traffic (AADT) on some of the main roads indicate that
traffic was in the range of 35,000 to 53,000 passenger car units (PCU) in the inner city road sections,
18,000 to 24,000 PCU for intermediate city road sections and in the range of 10,000 to 18,000 PCU
on roads in the city’s periphery. It is estimated that the AADT on inner city roads would reach
43,000-64,000 PCU during the year 2004. This high traffic volume exerts more pressure on the
existing narrow urban roads, causing frequent congestion and accidents.

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Table 9-20: Peak Hour Traffic Distribution at Selected Locations

Sl. Road Section AADT Peak Hour Peak Hour Estimated Estimated
No. (PCU)-2000 Traffic Factor (%)- AADT Peak Hour
12
(PCU )- 2000 (PCU)-2004 Traffic (PCU)
2000 - 2004*
1 Outer City Sections
1.1 Manacaud-Vizhinjam 17,755 1,521 8.6 21,581 1,849
1.2 Sasthamangalam -
Vattiyoorkavu 17,759 1,730 9.7 21,586 2,103
1.3 Vazhuthacaud-Pangode 10,532 1,184 11.2 12,802 1,439
2 Intermediate City Sections
2.1 Karamana-Poojapura 18,021 1,640 9.1 21,905 1,993
2.2 Uppilamoodu-Kaithamukku 24,304 2,432 10.0 29,542 2,956
2.3 Palayam-Pettah Road 24,369 2,533 10.4 29,621 3,079
2.4 Jagathy-Poojapura Road 24,433 2,211 9.0 29,698 2,687
3 Inner City Sections
3.1 Thampanoor-Killipalam 35,088 2,947 8.4 42,650 3,582
3.2 Killipalam-Karamana 34,900 3,101 8.9 42,421 3,769
3.3 Overbridge-East Fort 52,802 3,848 7.3 64,181 4,677
* - Estimated with 5% annual growth rate.
Source: 'Draft Report on Short, Medium and Long Term Measures and Feasibility for Integrated Mass Transport System', July 2002
submitted to Department of Transport, Govt. of Kerala.

Primary surveys carried out on selected road sections in the outer city area in August 2004 indicate that
most of the road sections have reached their maximum capacity and need widening.

Table 9-21: Peak-hour Traffic Volume on Selected Road Stretches

Sl. Link Name Peak-hour Peak-hour Capacity Volume-

No. traffic volume in PCU* capacity
(PCU)* ratio13
1 Manacaud-Kamaleshwaram Section 8.45 - 9.45 AM 2,650 2,143 1.24
2 Ulloor-Karyavattom Section of NH 47 9.00 - 10.00 AM 4,676 2,143 2.18
3 Ulloor-Kesavadasapuram Section of NH 47 10.00 - 11.00 AM 3,068 2,143 1.43
4 Poojapura-Pangode Section 8.00 - 9.00 AM 4,106 1,714 2.40
5 Sasthamangalam-Maruthankuzhi Section 9.15 - 10.15 AM 3,138 1,714 1.83
6 Paruthipara-Ambalamukku Section 4.15 - 5.15 PM 2,433 1,714 1.42
7 Pettah-Anayara Road 10.00 - 11.00 AM 1,673 800 2.09
8 Anayara-Veli Road 2.45 - 3.45 AM 280 800 0.35
* - PCU conversion and capacity calculations are as per IRC: 106-1990 (Guidelines for capacity of Urban Roads in Plain
areas).
Source: Primary survey by ADB PPTA (2004).

12
In order to assess traffic flows and patterns, a common unit called the passenger car unit (PCU) is followed in India. The PCU is a unit,
which represents equivalent space occupied by a particular vehicle type in the traffic stream, corresponding to its average speed. The car is
considered a representative vehicle and its PCU is assumed as unity. The PCU is used to determine the traffic intensity of different roads
with different composition of vehicle types; the traffic capacity of different road types; and the utilization level of a particular road to define
congestion levels. Further details are provided in Volume 6 – Technical.
13
The Volume/Capacity (V/C) Ratio indicates the congestion levels on a particular road. The Indian Road Congress (IRC) specifies a design
service volume (DSV) for each road type therefore indicating a level of service. The utilization of a particular road is then derived using the
V/C Ratio where ‘V’ indicates the observed traffic volume on the identified road type and ‘C’ indicating the DSV or the Maximum Volume
on the identified road type. Further details are available in Volume 6 – Technical.

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Radial Roads. Of the existing radial roads, five roads are on major corridors with high inter-city
vehicular traffic entering / leaving the city. Traffic on these five roads constitutes 83% of the total
inter-city vehicular traffic. These roads are:

a) NH 47, towards Neyyatinkara;

b) NH 47, towards Kollam;
c) Peroorkada-Nedumangadu Road;
d) Main Central Road; and
e) Peyad-Malayinkeezhu Road.

Through Traffic. Volume of commercial vehicles passing through the city is estimated as 2,000
vehicles per day, with 19% of commercial traffic passing through the city due to the lack of a bypass.
87% of through traffic passes on the aforesaid five major radial roads.

Table 9-22: Details of Commercial Vehicular Through Traffic

Commercial Traffic (No. of Estimated Commercial
vehicles) – 2000 Traffic (No. of vehicles) –
Sl. 2004*
Outer Cordon Road Section
No. Total External - % Total External - %
per External Share per External Share
day Traffic day Traffic
1 Vizhinjam-Balaramapuram Road 320 19 5.9 389 23 5.9
2 NH 47 towards Neyyatinkara 3,403 690 20.3 4,136 839 20.3
3 Peyad-Malayinkeezhu Road 733 88 12.0 891 107 12.0
4 Vattiyoorkavu-Nettayam Road 530 54 10.2 644 66 10.2
5 Peroorkada-Nedumangadu Road 722 88 12.2 878 107 12.2
6 MC Road 610 94 15.4 741 114 15.4
7 Kattakonam-Pothencodu Road 235 26 11.1 286 32 11.1
8 NH 47 towards Kollam 2,239 578 25.8 2,722 703 25.8
9 Station kadavu-Perumathurai Rd 83 2 2.4 101 2 2.4
Total 8,875 1,639 18.5 10,788 1,992 18.5
* - Projected traffic
Source: 'Draft Report on Short, Medium & Long Term Measures and Feasibility for Integrated Mass Transport System', July 2002 submitted
to Department of Transport, Govt. of Kerala.

Central City Roads. The trip pattern in Thiruvananthapuram indicates that 69% total trips in the city
are daily commuter with long trip distance (40% work trips with average trip length of 6.7 km and
29% education trips with average trip length of 5.4 km). The average trip length for daily commuting
by city bus is longer (work trip of 9.9 km and education trip of 8.0 km). About 33% of trips are
generated within the distance range of 2 km from Statue Junction and another 47% of trips within the
range of 2 to 6 km from Statue Junction14. Thus the concentration of trip generating activities in the
central city with longer trip length exerts pressure on the available road network in the central area.

14
‘Demand Assessment Report’, Theerapatham Urban Development Project, (2003) submitted to Thiruvananthapuram Capital Region
Project, Govt. of Kerala.

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This warrants area specific traffic management measures of low-cost nature, as road widening would
involve excessive displacement and cost.

Junctions. Road widths in the inner and intermediate city areas are generally narrow and experience
heavy traffic flow. This results in frequent traffic congestion and posse problems for turning traffic at
junctions. Of the 24 major junctions where turning traffic data is available for the year 2000, seven
junctions (Pazhavangadi, Overbridge, Vellayambalam, Medical College, Thampanoor, Statue Middle
and Statue South) indicate high peak hour traffic volume, approaching critical levels. With the
estimated 5% annual growth rate, most of the aforesaid junctions have reached critical levels during
peak hours in 2004. Most of the junctions need redesign and signalization. Accident statistics show
that the junctions are potential accident locations. Absence of adequate pedestrian facilities, location
of bus stops and auto parking close to junctions, absence of adequate turning radius, etc., are few
major problems at junctions. The surveys carried out in 2004 at three junctions of second order in
nature have revealed that peak-hour traffic in the range of 3,600 to 5,300 PCUs and these junctions
need specific attention to minimize the junction related problems.

Table 9-23: Peak-hour Turning Traffic at Selected Junctions

Sl. Junction Name Peak-hour Peak-hour traffic volume

No.
No. of vehicles PCU*
1 Manacaud Junction 9.00 - 10.00 AM 4,141 5,310
2 Vattiyoorkavu Junction 8.00 - 9.00 AM 2,842 3,657
3 Edapazhanji Junction 9.00 - 10.00 AM 3,989 4,873
* - PCU conversion is as per IRC:106-1990 (Guidelines for capacity of Urban Roads in Plain areas)
Source: Primary survey under ADB PPTA (2004).

Under the Capital Region Road Development Program, all junctions falling in the road corridors
under improvement are proposed for improvement along with two grade separators (at Bakery
Junction and Power House Road Junction and one under pass at Palayam). However, other critical
junctions also need to be improved.

Parking. On-street parking is a major issue due to the absence of off-street parking facilities. Heavy
parking demands on the major corridors reduce the usage of carriageway, causing congestion and
blocking connecting roads. Major parking demand corridors in the city are at Vazhuthacaud, East
Fort, Palayam, Pulimoodu, Over bridge, Power House Road, Statue, Museum, Vellayambalam,
Medical College and inside Fort. The concentrated commercial and institutional activities along the
MG Road between Palayam and East Fort generate heavy on-street parking demand on this section
and its connector roads.

Thiruvananthapuram MC has identified three locations along MG Road for providing off-street
parking facilities and has already initiated land acquisition processes.

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Table 9-24: Peak On–Street Parking Accumulation

Location Predominant Mode Peak Hour Parking Predominant Mode
in Peak Hour Accumulation (No.) Accumulation in
Peak Hour (No.)
Vazhuthacaud Car 247 85
Power House Road 2 wheeler 205 109
Pulimoodu-MG Road 2 wheeler 112 70
Pulimoodu-Press Road 2 wheeler 108 55
SMV High School-MG Road 2 wheeler 86 52
Pulimoodu-Kaithamukku Road 2 wheeler 82 63
Secretariat 2 wheeler 78 38
Vellayambalam-Sasthamangalam Road 2 wheeler 77 67
East Fort Car 70 35
Museum 2 wheeler 70 39
Station Road 2 wheeler 55 33
Palayam 2 wheeler 54 37
VJT Hall 2 wheeler 52 44
Source: 'Draft Report on Short, Medium & Long Term Measures and Feasibility for Integrated Mass Transport System', July 2002 submitted
to Department of Transport, Govt. of Kerala.

Pedestrian Facilities. Apart from all the major road corridors in the inner and intermediate city area,
locations with commercial, hospital and educational activities indicated heavy pedestrian traffic for
parallel and crossing movement. Even the outer city road sections indicated considerable pedestrian
traffic, particularly during peak hours, as indicated in Table 9-25. Critical sections with heavy
pedestrian traffic include Chalai, Station Road, VJT Hall, Secretariat, Power House Road, Palayam,
East Fort and Cotton Hill School. Peak hour pedestrian traffic at these locations is projected to cross
6,000 persons by 200615. Except few sections, many the roads do not have footpath facilities.

Table 9-25: Mid-block Pedestrian Count at Selected Outer City Locations

Sl Section Name Peak Hour Pedestrian Volume

No (No)
1 Manacaud-Kamaleswaram Section 3.15 -4.15 PM 638
2 Paruthippara-Ambalamukku Section 3.15-4.15 PM 618
3 Ulloor-Keshavadasapuram 8.30-9.30 AM 621
4 Ulloor-Karyavattam 4.45-5.45 PM 375
5 Shasthamangalam-Maruthukuzhi 8.30-9.30 AM 900
6 Poojappura-Pangode 8.00-9.00 AM 774
Source: Primary Survey under ADB PPTA 2004.

9.5.4 Road Safety

In 2003, Thiruvananthapuram District had 350,455 registered motor vehicles, of which majority of
them were in the city region. This suggests that on average, there are 106 motor vehicles for every
1,000 persons and 160 vehicles per sq. km area. This is significantly higher than the State average, of
78 motor vehicles per 1,000 persons and 65 vehicles per sq. km area. During the period 1991-2003,
the average annual growth of vehicle population was 11% but with a declining trend during 2001-03

15
Traffic Engineering and Management Study – Trivandrum, December 1991, KUDP (CES, New Delhi).

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(9.3%)16. Growth of motor vehicles and its pressure on the road network is significant, resulting in
over utilization of road network in the region with frequent traffic problems like congestion and
accidents. Available statistics indicate that road accidents are a major concern in Thiruvananthapuram
District with a 7% average annual growth rate during 2001-03.

Table 9-26: Details of Road Accidents in Thiruvananthapuram District

Sl. Year No. of Annual No. of Persons Annual No. of Persons Annual
No. Accidents Growth (%) Injured Growth (%) Killed Growth (%)
1 2000-01 4,096 4,687 264
2 2001-02 4,067 -0.71 4,650 -0.79 279 5.68
3 2002-03 4,662 14.63 6,037 29.83 289 3.58
AACGR (%)
1 2001-03 6.69% 13.49% 4.63%
Source: Economic Review 2002 and 2003, State Planning Board, Govt. of Kerala.

Out of the 4,662 accidents reported in Thiruvananthapuram District during the year 2002, about 39%
of the accidents (1,818 accidents involving 2,616 vehicles) were from Thiruvananthapuram alone.
58% of the reported accidents in Thiruvananthapuram occurred at junctions17. Of the 2,616 vehicles
involved in city accidents, the major share was by two-wheelers (1,213 vehicles) followed by three
wheelers (448 vehicles) and car/jeep (441 vehicles); these three together constitute 80% of the total
vehicles involved in accidents. Available accident analysis indicates that pedestrians (38.45%) and
cyclists (10.19%) are the most affected persons in Thiruvananthapuram and together constitute 49%
of the total road accident victims.

9.5.5 Existing Street Lighting

In general, urban roads are provided with streetlights of different categories. As per the CES Study
(2000), about 80% of major roads in the city were provided with adequate streetlights.
Thiruvananthapuram MC maintains streetlights through Kerala State Electricity Board (KSEB). Road
inventory survey conducted under the PPTA at selected major roads, mostly in the outer-city area,
revealed that roads are adequately lit with tubes (45%) and SVL (51%). Average distance between
lampposts on major roads was 39 m. About 19% of streetlights at selected road sections were not
working due to delay maintenance.

16
Compiled from Economic Review 2002 and 2003, State Planning Board, Govt. of Kerala.
17
Hand Book on Road Accident Statistics, (2004), NATPAC.

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Table 9-27: Details of Street Lights Availability at Selected Road Sections

Sl. Road Section Length No. of lights Avg. Lights not
No. (km) space working on the
between survey day
Bulbs Tubes MVL SVL Total street No. %
lights (m)
1. Attakulangara-Manacaud-Thiruvallom
5.20 2 12 101 - 115 45 18 15.65
Bypass Junction
2. Karamana-Pangode-Peyad Section 8.15 2 115 113 - 230 35 49 21.30
3. Kesavadasapuram-Ulloor -
9.32 19 78 94 14 205 45 40 19.51
Kazhakootam Section
4. Paruthipara-Ambalamukku Section 2.27 - 56 4 - 60 38 15 25.00
5. PMG-Pottakuzhi Section 1.63 - 25 26 - 51 32 13 25.49
6. Sasthamangalam-Vattiyoorkavu -
5.06 2 33 107 - 142 36 26 18.31
Nettayam Section
7. West Fort-Pettah-Anayara Section 5.35 4 109 59 - 172 31 27 15.70
8. Anayara-Veli Section 2.40 1 28 7 - 36 67 6 16.67
Total 39.38 30 456 511 14 1,011 39 194 19.19
Source: Primary Survey under PPTA, 2004.

Problems and Prospects. A few intersections and major road corridors, including the NH Bypass
portion, are insufficiently lit. The existing maintenance system needs improvement as 20% of street
lights do not function or lack of maintenance. As a part of the Capital Region Road Development,
Kerala Urban Development Project (KUDP) lays emphasis on providing adequate streetlights. As a
pilot program, KUDP had identified the following four major road stretches18 for streetlights: (i)
Kazhakutam-Chakkai (11.5 km), (ii) Ulloor-Kesavadasapuram-Plamoodu Section of NH47 (4.5 km),
(iii) Attakulangara- Killipalam-Karamana Road (3.5 km) and (iv) Vellayambalam-Thycaud Road (4.0
km). The 42 km city road stretches proposed for widening under Capital Region Road Development
Program by KUDP has adequate street light provisions.

9.5.6 Existing Access to Public Transport

Rail Transport
Three rail stations serve Thiruvananthapuram and the rail line divides the city into two by passing city
center. The older part of the city is towards the south of the rail line while all new developments are
taking place in the northern part of the city. Six rail-over-bridges (ROBs) provide uninterrupted access
between the two parts of the city. Three level crossings at Melanur, Pettah and Kochuveli affect road
traffic due to their frequent gate closures. Traffic at Pettah level crossing is about 0.63 million train
vehicle unit (TVU) per day, whereas Kochuveli and Melanur level crossings will reach 0.1 million
TVU soon. This justifies the requirement of ROBs at these locations.

Bus transport
The city bus service is mainly operated by Kerala State Road Transport Corporation (KSRTC) and
supplemented by private bus operators.

18
Based on the discussion with the officials of KUDP, Thiruvananthapuram.

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„ KSRTC operates most city services from five depots and inter-city trips from one regional bus
terminal at Thampanoor;
„ KSRTC operates 449 buses in 790 routes with a total trip length of 95,680 km (average trip
length is 16 km) catering to intra-city travel needs19; and
„ Private buses operate 1,714 trips per day with a total route length of 1,770 km (average route
length is 16.2 km) using 103 buses.20

Air Transport
Thiruvananthapuram has an international airport catering both domestic and international flights.
During the year 2002-2003, 10,524 flights were operated from this airport of which 62% were
international. Little more than one million air passengers boarded or alighted at this airport and this
was 5.6% more than the air traffic in the previous year. This increasing air traffic exerts pressure on
the city road network through taxi/car usage as mode change from airport.

Water Transport
Though Thiruvananthapuram has inland water network on the western part of the city, there is no
passenger or cargo movement. But it has tourism potential, which is being developed through a
number of tourism related schemes.

Intermediate Public Transport (IPT)

Auto rickshaw is the popular IPT mode. Vans/Mini Buses are found operating along the radial roads
to outer city destinations.

Public Transport Share

Public transport is provided through intra-city and inter-city bus services, institutional buses and rail.
Household Survey under the CES Study (2000) indicates that only 26% of the household trips in
Thiruvananthapuram city were through the public transport system, which is much below the desired
level of 50%. This may be due to high ownership of private vehicles and inadequate access to
appropriate public transport services.

19
Economic Review 2003, State Planning Board, Govt. of Kerala.
20
Compiled by National Transportation Planning and Research Centre (NATPAC), Thiruvananthapuram.

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Table 9-28: Distribution of Household Trips by Public Transport

Percentage of Total Household Trips

Area Long Total IPT Modes Total

City Institutional
Distance Train Public (Taxi / Household
Bus Transport
Bus Transport Auto) Trips
Trivandrum
17.7 0.6 7.6 0.3 26.2 8.5 100.0
Corporation
Panchayats 33.4 1.4 4.6 0.0 39.4 2.4 100.0
TRIDA 25.7 1.0 6.1 0.2 33.0 5.4 100.0
Source: 'Draft Report on Short, Medium and Long Term Measures and Feasibility for Integrated Mass Transport System', July 2002
submitted to Department of Transport, Govt. of Kerala.

Major issues identified include: (i) bus stops with inappropriate design and locations; (ii) inadequate
terminal facilities; (iii) absence of terminals for private buses; (iv) roadside parking of private/KSRTC
buses at trip origin/destination; and (v) inadequate coverage of public transport services due to poor/
narrow roads resulting in more concentration on major corridors.

Prospects. Works already undertaken or initiated to improve the public transport infrastructure
include: (i) designed bus bays along the proposed improvement corridors; (ii) renovation of
Thampanoor bus terminal for city services; (iii) shifting the regional bus terminal to Enjakkal near the
NH Bypass; (iv) developing Kazhakutam Bus Terminal on self-sustaining basis; (v) introduction of
mini bus services and fleet modernization by KSRTC; and (vi) renovation of Thiruvananthapuram
Central Railway Station with adequate parking facilities.

9.5.7 Roads and Transportation Scheme Selection

From the CRNP, a long list of priority schemes was identified. The long list was then screened to
select schemes that could satisfy the Project objectives and comply with ADB funding requirements
and guidelines. During the screening process, committed road network improvement projects by
various agencies were reviewed, incorporated in the CRNP and excluded from the proposals
undertaken by KSUDP. The proposals finalized for KSUDP were screened based on (i) total transport
improvement of the city; and (ii) minimal/negligible environmental and social impacts. Apart from
the network justification, traffic-based need analysis was carried out for the identified proposals.
Results of the need analysis, taking into consideration the projected volume-capacity ratio and
required lanes for the years 2009 and 2014 for all five cities, are presented in Volume 6 – Technical,
Section E; the figures justify the need for carrying out improvements to the identified road sections.
The road and urban transport proposals identified under KSUDP will therefore form a part of the total
city network requirement, for achieving the desired traffic flows and service levels.

Based on city priorities and capacity for implementation within the project timeframe appropriate
improvements are proposed with minimum social and environment impact. The proposed sub-project
component schemes listed in Table 9-29 are summarized in Chapter 10.

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Table 9-29: Proposed Road and Transport Improvement Schemes for Thiruvananthapuram

Sl. Road Name Activity / Justification Length

No. (Km)
A. ROAD UPGRADING
1 Anayara-NH Bypass-Veli Tourist This road will provide the missing links between the Poonthi
village road. – Anayara Road, Veli Tourist Village Road and the Airport
Road. Also it will provide access to Kochuveli Railway
1.1 NH Bypass-Veli Tourist village
Station, which is being developed as a Satellite Railway 1.90
road.
Station.
2 PMG-Law College Jn Road This link is the part of the First Intermediate Ring Road. The
section additional link between Law College Jn and Pottakuzhi will
provide the much needed link between the First and Second
2.1 PMG-Law College Jn 0.50
Intermediate Ring Roads.
3 Peroorkada-Pipinmoodu-
Sasthamangalam-Edapazhanji-
Jagathy-Killipalam road.
3.1 Peroorkada-Pipinmoodu
2.50

3.2 Pipinmoodu-Sasthamangalam This link is the part of the Second Intermediate Ring Road
and will help to shift the traffic from Peroorkada – 1.00
Vellayambalam - LMS - MG Road.
3.3 Sasthamangalam-Edapazhanji
1.50

3.4 Edapazhanji-Jagathy
1.90

3.5 Jagathy-Killipalam road. 1.20

4 Ulloor-Kesavadasapuram section
of NH47 These links form the northern part of the Outer Ring Road
4.1 Ulloor-Kesavadasapuram section and provide vital link to the major radial roads.
1.00
of NH47
5 Karamana-Poojapura-Thirumala-
Peyad road up to the Mid-orbital This radial road will help to provide access to the under
road alignment.
developed eastern part of the city as well to major tourist
5.1 Poojapura Round-Thirumala Jn destinations. 2.60
5.2 Valiyila Jn-Peyad Jn 3.20
Attakulangara – Manacaud –
6
Thiruvallam – NH Bypass road. This radial road will help to provide access to the under
developed south-western part of the city as well to major
6.1 Attakulangara-Manacaud Jn 1.00
tourist destinations.
6.2 Manacaud Jn-NH Bypass 4.20
Total 22.50

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10. THE PROPOSED SUB-PROJECT

10.1 Project Purpose
The purpose of the Project is to improve the urban environment and living conditions, with particular
attention to the urban poor, in the five municipal corporations.

The Sub-Project has thus been designed with city components grouped into three broad, mutually
interactive and supporting categories, further elaborated in the sections below.

„ Part A: Urban Infrastructure Improvement;

„ Part B: Urban Management and Institutional Development; and
„ Part C: Implementation Assistance.

10.2 Part A: Urban Infrastructure Improvement

The process leading to the selection and formulation of the main physical infrastructure project
components is described in Volume 1, Chapters 7 and 8 plus the technical analysis presented in
Chapter 9 above and Volume 6 – Technical Analysis. A review of priority needs in the project cities
against the main project objectives has resulted in a concentration on environmental infrastructure
components for improvements in: water supply; sewerage and sanitation; storm water drainage; solid
waste management; and, urban roads and transportation. A summary description of the sub-project
components is given in the following sections.

10.2.1 Water Supply Component

There is no water supply component for Thiruvananthapuram. Funding for improving this sector is
currently being provided under JBIC assistance.

10.2.2 Sewerage and Sanitation Component

Thiruvananthapuram Municipal Corporation will require collecting and treating 180 MLD of sewage
discharged from a population of approximately 925,000 by 2041 contemplating a sewerage system
with an average per capita water supply of 200 lpcd. The proposed component under KSUDP,
contributes in achieving the target through rehabilitation / extension of sewerage networks,
construction of a STP, procurement of sewer cleaning equipments, in order to collect and treat
approximately 120 MLD of sewage from approximately 500,000 users in the high density central and
coastal areas of Thiruvananthapuram Municipal Corporation. Besides this, sanitation improvements in
non-sewered areas are proposed through the provision of equipment for de-sludging of existing septic
tanks and on-site sanitation systems for poor communities benefiting a total population of 190,000.

Based on city priorities and capacity for implementation within the project timeframe the following
sub-project component is proposed. In addition, funds are allocated in Part B – Urban Management
and Institutional Development, under the poverty alleviation component, for community
infrastructure, such as on-plot sanitation and community sanitation facilities for poor communities.
The proposed sewerage system is indicated in Figure 10-1.

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Total component beneficiaries at EOP (2011) will be 689,300 of which 108,200 are poor.

Sub-Component 2a: Rehabilitation of the Existing Sewerage System (popn. 350,000)

„ Replacement of pumps (600 HP) and replacement of pressure mains (350 mm CI- 10 Km);
„ Construction of generator house and installation of DG sets in existing 8 No. Pumping stations
and replacement of pump panels and accessories; and
„ Provision of 2 No. Diesel driven truck mounted sewer jetting cum suction cleaning machines.

Sub-Component 2b: Extension of the Sewerage System in Coastal Area (popn. 150,000)
„ Laying of 20 Km main trunk sewers on both sides of PP Canal;
„ Laying of 50 Km lateral and branch sewers (200- 250 mm) with 30,000 house connections; and
„ Construction of 8 No. sewage pumping stations.

Sub-Component 2c: Construction of Sewage Treatment Plant at Valliyathura

„ Construction of sewage treatment plant at existing sewage farm. 120 MLD Fluidized Aerobic
Bed (FAB) STP; treated effluent to be used for growing fodder. The Valiathura STP site plan is
indicated in Figure 10-2.

Sub-Component 2d: Facilities for Non-Sewered Areas

„ Provision of 3 No. Diesel driven truck mounted vacuum septic tank cleaning machines, which
will benefit a population of 156,000. The sludge would be digested and dried in the proposed 120
MLD STP at Valliyathura; and
„ Provision of 5,000 household twin pit pour-flush latrines and 30 community sanitation blocks
(included under poverty alleviation component).

10.2.3 Urban Drainage Component

Thiruvananthapuram Municipal Corporation will require maintaining 722 km of its drainage system
with 432 km of road side open drains. The proposed component under KSUDP, contributes in
mitigating the localized flooding during Monsoons in affected parts of the city through rehabilitation
of the existing drains, construction of new drains, providing top covers to 87 km of open drains,
provision of bypasses in order to effectively dispose of storm-water in the urban areas. To achieve
this, topographical surveys and preparation of 1m contour maps is essentially proposed to prepare a
detailed drainage master plan taking into consideration the rainfall intensity and other topographical
factors.

The following project components have been proposed after conducting joint site visits and
consultation with the officials of the TMC and State Irrigation Departments. Factors such as city
priorities, avoidance of social impacts caused by resettlement and rehabilitation of canal bank
encroachments and capacity for implementation within the project timeframe have been considered
while selecting the project sub-components. Urban drainage proposals are indicated in Figure 10-3.

Total component beneficiaries at EOP (2011) will be 83,400 of which 44,700 are poor.

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Sub-Component 3a: Detail Study and Preparation of Drainage Master Plan (included under
Implementation Assistance).

Sub-Component 3b: Rehabilitation of existing culverts, construction of by-pass culvert, silt pits
etc. and widening of Pazhavangadi Thodu (main canal).

Sub-Component 3c: Improvement of other secondary drains.

10.2.4 Solid Waste Management Component

Solid waste management component is already a committed project under the Capital Regional
Development Program and therefore is not be included in the KSUDP.

10.2.5 Roads and Transportation Component

Roads and urban transport proposals are based on a Conceptual Road Network Plan (CRNP) prepared
for the city, which are based on previous comprehensive traffic and transport schemes. The CRNP
also drew from inputs based on discussions with officials from the municipal corporation,
Development Authority, Town Planning Department, Public Works Department and the
Transportation Advisor to Government of Kerala (GoK), Prof. Dr. NS Srinivasan. The CRNP also
takes into consideration the existing network, directions of likely development, Master Plan/Traffic
Study proposals and stakeholder suggestions.

The improvements proposed are with minimum social and environment impact. Twelve sections in
six road corridors totaling 22.5 km length are proposed for capacity augmentation. Urban roads and
transport proposals are indicated in Figure 10-4.

Total component beneficiaries at EOP (2011) will be 157,200 of which 15,700 are poor.

Sub-Component 5: Road Upgrading

„ NH Bypass-Veli Tourist village road;

„ PMG - Law College Jn. Link Road;
„ Peroorkada- Killipalam road;
„ Ulloor-Kesavadasapuram section of NH47;
„ Poojapura Round-Thirumala Jn and Valiyila Jn-Peyad Jn Radial Roads; and
„ Attakulangara-Manacaud Jn- NH Bypass.

10.3 Part B: Urban Management and Institutional Development

While KSUDP will ensure infrastructure provision in the five municipal corporations, for long-term
sustainability of the assets created and for effective management of urban basic services, it is
imperative to address key management issues. Infrastructure creation under KSUDP will be
implemented through the Project Management Office (PMO) at the state-level in association with
Project Implementation Units (PIUs) at each corporation; Kudumbashree will advise and monitor

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poverty alleviation components in the city corporations. The urban management component under
KSUDP is related to institutionalizing a system to address the municipal corporations’ ability to
sustain service provision and the LSGD’s ability to oversee service delivery by LSGIs. In summary,
the urban management and institutional development under KSUDP will address:

„ Capacity building of the Local Self Government Department and the Directorate of Urban
Affairs regarding internal systems and procedures and ULB performance monitoring;
„ Capacity building of the five Project municipal corporations comprising urban planning, asset
inventorization, accounting and financial management;
„ Municipal staff training on project development, design and implementation – this shall apply to
the five municipal corporations and 53 municipalities; and
„ Community development and participation including poverty alleviation tracking.

From the urban management perspective, KSUDP will complement the activities envisaged under the
ADB aided Modernizing Government Program (MGP). Urban Management and Poverty Alleviation
activities under KSUDP would address select initiatives in MGP’s Theme V on Effective, Efficient
and Accessible Local Self Government and shall include:

„ Five-Year Planning Framework. Asset management plans, community rehabilitation plans for
the physically and mentally challenged, and spatial plan with focus on connectivity.
„ Local Economic Development. Identification of micro-enterprise opportunities for the poor.
„ Strengthen Local Self Governments. New office management systems, procurement manuals,
public works manual, IT plan, budgeting, accounting and resource mobilization.

10.3.1 State Level Institutional Development

The current role of the LSGD is primarily related to policy formulation and administrative control of
all agencies within its purview; the DUA shares this responsibility and facilitates in tracking Plan fund
flows / devolution and human resource / personnel management. However, in order to enhance the
role of the LSGD and DUA in urban management, the outcomes of capacity building assistance
activities comprise (i) comparative performance assessment / municipal database institutionalized at
the DUA and maintained by the DUA for ready reckoning by the State in policy matters; (ii) database
on the ULBs’ human resources/personnel; (iii) preparation of the budget manual; (iv) State Policy on
environmental sanitation infrastructure cost recovery; and (v) State Policy/Guideline on financing
patterns for infrastructure projects.

10.3.2 Municipal Corporation Institutional Development

The capacity building assistance to the five municipal corporations is aimed at addressing the
planning, core service delivery, institutional development and financial management improvements.
Key outputs of the capacity building assistance comprise (i) Geographical Information System (GIS)
based maps – for detailed engineering designs (following topographic surveys) and property mapping;
(ii) database on municipal assets and properties (property tax mapping) – property tax assessments
and existing service utility lines; (iii) financial management reforms through property tax

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rationalization and accounting reforms; (iv) undertaking other e-governance initiatives; and (iv)
developing performance based contracts for procurement, infrastructure creation and service
provision.

10.3.3 Municipal Staff Training

Under KSUDP, the objective of the training support is to address three key elements comprising
effective planning and infrastructure provision, core service delivery and asset management, and
prudent financial management. The training assistance shall address the following aspects (i)
sensitization / orientation training; (ii) conceptual training; and (iii) implementation training. It is
envisaged that this training and capacity building program will target the five Municipal Corporations
and 53 Municipalities. KILA will impart training to guide staff in appreciating project structuring and
feasibility analysis; this activity will run parallel with the works of the Design and Supervision
Consultant (DSC) in the five Corporations to help staff contribute in the works of the DSC.
Preliminary sessions of the implementation training will commence before construction contracts are
awarded; main sessions on physical and financial monitoring will commence once the contractor is
appointed for project implementation.

10.3.4 Poverty Alleviation

Under KSUDP, the objective of capacity building for poverty alleviation initiatives is to ensure that
the Project benefits reach the poorest of poor and that all stakeholders involved in the Project are well
informed regarding the activities and process to achieve Project activities. A key component for
successful implementation of poverty alleviation initiatives is the constitution of a Civil Society
Organization (CSO), which is expected to identify requirement of the poor and vulnerable, and
facilitate Project implementation. The CSO will essentially comprise city-level stakeholders including
but not limited to the Municipal Corporation, business groups, and resident welfare associations,
NGOs, CBOs, CDS and Kudumbashree. Training of CSO members, UPA staff at MC, Kudumbashree
and CDS members is therefore imperative and may be carried out through identified training
institutes. While a training needs assessment is a requisite for identifying areas of capacity building,
the following is an indicative list

„ Community Infrastructure Fund (CIF). These activities may include (i) planning and
identification of community infrastructure needs; (ii) operational and maintenance issues relating
to infrastructure provision; and (iii) awareness regarding women empowerment, environmental
health and diseases, and education.
„ Poverty Social Fund (PSF). These activities may include (i) conceptual clarity for scaling-up
livelihood initiatives through livelihood development strategies; (ii) facilitating confederation of
Self Help Groups to graduate into Micro Finance Institutions (MFI); and (iii) focus on business
development initiatives for micro enterprises.
„ Strategic Programs. These may include (i) project development programs with specific reference
to CIF and PSF utilization; (ii) CSO networking and resource convergence; and (iii) creating
strategy mechanism for CSO to run programs under health, sanitation and income generation.

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10.4 Part C: Implementation Assistance

The Project Management Office (PMO) based in the state Local Self Government Department
(LSGD) and the Project Implementation Units (PIU) based in the 5 Project cities will implement
KSUDP. A Project Management Consultant (PMC) group comprising international and domestic
firms will be located in Thiruvananthapuram to assist the PMO in project management and two
domestic Design and Supervision Consultant (DSC) firms will be provided to assist each PIU in the
project cities. A domestic Public Relation Consultant (PRC) firm will be employed by the PMO to
make the public aware of the short-term inconveniences and long-term benefits of the project. A
domestic Benefit Monitoring and Evaluation Consultant (BMEC) firm will be required to help the
PMO in generating baseline data, which will be monitored to assess impact of the Project. The PMO,
with assistance from the PIUs, will identify and recruit NGOs in each Project city primarily for
assisting in the poverty alleviation planning process through community participation, the public
awareness campaigns and project benefit monitoring and evaluation; the NGOs may also assist with
any rehabilitation and resettlement activities. Further details on implementation are provided in
Chapter 11.

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11. CITY SUB-PROJECT IMPLEMENTATION

11.1 Executing and Implementing Agencies

11.1.1 Executing Agency

The Local Self Government (LSG) Department of the State Government would be the Executing
Agency (EA) of the project and will be responsible for overall strategic guidance, technical
supervision, execution of the project, and ensuring compliance with the loan covenants. A state-level
Project Management Office (PMO), led by a full-time Project Director executes the project; he/she
will have no other duties within the LSG or elsewhere. The Project Director, supported by the PMO
and consultants, will: (i) coordinate all activities under the Project; (ii) will be responsible for overall
project implementation, monitoring, and supervision; and (iii) will directly report to the Secretary,
LSG (Urban) Department. A state-level Empowered Committee (EC) will be set-up with full powers
to decide on matters related to the project. The Project Director would be the member secretary; the
members of the committee include the Chief Secretary (chairperson), Secretaries of Planning,
Finance, Local Self Government, Water Resource (or represented by MD, KWA and Chief Engineer,
Minor Irrigation) and Public Works. The Director, Kudumbashree will also form a part of the EC.
Other relevant officials may be invited as necessary. Once the project is made effective, the EC will
meet regularly to review project performance and decide on major issues, such as counterpart funding,
implementation bottlenecks, land disputes, special procurement, policy reforms, etc.

A Tender Approval Committee (TAC) comprising Secretary, LSG (U), Secretary, Finance, and PD,
KSUDP will approve all tenders related to KSUDP implementation; the EC will delegate powers
related to tender approvals to the TAC. The TAC will take decisions related to all tenders under
KSUDP.

11.1.2 Implementing Agencies

Given the multiplicity of functions and the overlap in service provision, identifying the implementing
agency is critical for smooth operations. The Municipal Corporations will be the implementing
agencies conforming to GoK’s policy of decentralizing planning and service delivery. A city-level
Steering Committee (SC) in each project city would be constituted for overcoming any bottlenecks in
project progress. The SC would constitute the District Collector, Mayor, Corporation Secretary,
representatives of State-level departments in the city (Public Works Department, Electricity Board,
Kerala Water Authority, Pollution Control Board, etc.), and representatives of chamber of commerce,
industry and NGOs. Besides reviewing project progress, the SC also sorts out local issues and
provides guidance on policy matters. The members of the Civil Society Organization (CSO) will
jointly discuss and prepare poverty alleviation projects, which will be approved by the City-level
Steering Committee. Kudumbashree will continue to play an active role in advising and monitoring
activities facilitating poverty alleviation.

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11.2 Project Management

11.2.1 Project Management Office

The PMO is responsible for (i) appointing project management consultants, detailed design and
construction supervision consultants, benefit monitoring and evaluation (BME) consultants, public
relations and community awareness consultants, and NGOs; (ii) approving the design of the
investment components in consultation with the project cities; (iii) pre-qualifying contractors; (iv)
implementing public relations and community awareness programs; (v) preparing standard bid
documents; (vi) monitoring the tendering process and guiding the project cities in bid evaluation and
preparing bid evaluation reports for approval by ADB; (vii) procuring equipment at the state-level;
(viii) coordinating with ADB on matters related to disbursements; (ix) conducting the training and
capacity building programs; (x) providing support under the institutional development assistance; and
(xi) maintaining project documents and submitting timely reports (including monthly project
performance reports, quarterly progress reports, BME reports) to ADB. The PMO is headed by the
Project Director and supported by deputies, based on the project size. The PMO is staffed with senior
level technical, financial, social, capacity building/management and procurement officers to manage
all technical and procurement and loan account administration. An accounting and administrative unit
manages procurement and loan account administration. The EC will authorize the Deputy Project
Director, Technical, to provide technical sanctions to all works under KSUDP after carrying out
suitable proof-checking of designs.

11.2.2 Project Implementation Units

A PIU will be established within each Municipal Corporation. The responsibilities of the PIU include:
(i) carrying out detailed surveys, investigations and engineering designs of individual city
components; (ii) tendering, evaluating bids and awarding works, contract administration, supervision
and quality control; (iii) measuring works carried out by the contractors and certifying payments; (iv)
conducting public awareness campaigns and participation programs, (v) carrying out the Benefit
Monitoring and Evaluation (BME) studies; (vi) carrying out environmental assessments; (vii)
ensuring project city compliance with loan covenants; and (viii) preparing monthly reports. The
Design Supervision Consultant (DSC) supports the PIU in all the aforesaid activities. A Project
Manager will head the PIU and will be supported by sector specialists in environmental and civil
engineering, as appropriate. The PIU will also comprise staff involved in procurement, accounts and
community development. Staff deputed from the Revenue Department shall handle all land
acquisition and resettlement and rehabilitation issues. The Project Manager at the PIU will report to
the Secretary, Thiruvananthapuram Municipal Corporation, and the Project Director at the PMO. All
administrative and project co-ordination related issues will be handled by the Secretary. The Secretary
will also be authorized to release payments to contractors based on the approval/certification of the
Project Manager, PIU, and subject to fund release by the PMO. The Secretary shall interface with the
Municipal Corporation Council and KSUDP regarding Project progress.

11.2.3 Project Management and Design Consulting Services

Consulting services are required for project management, engineering design, construction
supervision, procurement of goods and services, public relations and awareness, and BME.

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Consultants would be selected and engaged in accordance with ADB’s Guidelines on the Use of
Consultants and other arrangements satisfactory to ADB for selecting and engaging domestic
consultants.

„ Project Management Consultant (PMC). A Project Management Consultant group comprising

international and domestic firms will assist the PMO in project management activities including
reviewing engineering designs, procurement, and implementation. The PMC also assists the
Project Management Office (PMO) and the Project Implementation Units (PIUs) in project
formulations, management, monitoring and evaluation, financial and environmental management
aspects, public relations and awareness, training and capacity building, and institutional
development / strengthening.
„ Design and Supervision Consultant (DSC). The main objectives of the DSC is to update maps
and plans, undertake survey, investigations and prepare detailed designs of various project
components for each project city, prepare technical specifications and contract documents, assist
in construction supervision and quality control, and undertake works measurement. Two DSCs
will support PIUs in the five Corporations; one for the southern region covering
Thiruvananthapuram and Kollam and the other for the northern region covering Kochi, Thrissur
and Kozhikode.
„ Public Relations Consultant (PRC). A domestic Public Relations Consultant firm appointed will
facilitate public relation and awareness programs (PRAP) on project related issues. The
Information, Education and Communication (IEC) materials developed by the PRC is utilized in
public awareness campaigns.
„ Benefit Monitoring & Evaluation Consultants (BMEC). A domestic Benefit Monitoring &
Evaluation (BME) consulting firm recruited by the PMO will identify and evaluate broad
macroeconomic, socio-economic and environmental impact of the Project and ensure that project
facilities are managed efficiently and the benefits of the project reach the target groups. For this
purpose, the BME consultants will liaise closely with the PMO, PMC and DSCs to measure the
benefit resulting from the Project, and facilitate the PMO in correcting any problems or issues
arising from the feedback provided.
„ Non-Governmental Organizations (NGOs). NGOs recruited in each project city will assist in
public awareness campaigns and benefit monitoring and evaluation studies. NGOs will also form
a part of the CSO to identify and help implement poverty alleviation components. NGOs
generally have experience in community mobilization, training, information dissemination,
communication and media development covering the fields of municipal service provision,
socio-economic surveys, environmental health, income generation, education, gender and
resettlement.

Figure 11-1 indicates the proposed project management structure.

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Figure 11-1: KSUDP – Proposed Project Management Structure

Asian
Asian Development
Development Government
Bank
Bank of India

Govt. of Kerala
Empowered Committee (EC)

Project Project
Project
Project City-level Steering
Management Management
Management
Management Committee (each city)
Consultants Office
Office
Consultants(PMC)
(PMC)

Project Project
ProjectImp. Project
ProjectImp. Project
ProjectImp. Project
ProjectImp.
Imp.Unit,
ProjectImp.
Imp.Unit,
Unit, Imp. Imp. Imp. Unit,
Thiruvananthapuram Unit,
Unit,Kollam
Kollam Unit,
Unit,Kochi
Kochi Unit,
Unit,Thrissur
Thrissur Kozhikode
Kozhikode
Thiruvananthapuram

Design
Designand
andSupervision
Supervision Design
Designand
andSupervision
Supervision
Consultants
Consultants(DSC)
(DSC) Consultants
Consultants(DSC)
(DSC)
TVM
TVMand
andKLM
KLM KCH,
KCH,TSR
TSRand
andKZD
KZD

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11.3 Procurement and Disbursement Procedure

11.3.1 Procurement of Goods and Works

Goods, works, and services financed by ADB will be procured in accordance with ADB’s Guidelines
for Procurement. Procurement will generally be carried out by the PIUs under the guidance of the
PMO, except for equipment and vehicles common to all cities, which will be directly procured by the
PMO. Equipment and selected materials will be acquired using international competitive bidding
(ICB), international shopping (IS), and local competitive bidding (LCB) procedures as appropriate. To
the extent possible, goods to be procured will be grouped into packages larger than $500,000 to be
suitable for ICB procedures. Miscellaneous goods for immediate use that cannot be grouped into a
larger contract and that cost less than $500,000 per contract will be procured through IS or LCB
procedures. Off-the-shelf items and standardized products costing $100,000 or less will be procured
following the State’s applicable procurement procedures acceptable to ADB.

Given the Project areas’ geographic location and the nature of works, civil works contracts valued at
less than $5 million each would not be attractive to international bidders, and therefore will be carried
out using LCB procedures acceptable to ADB. Some civil works such as road improvements, sewage
treatment plants, pumping stations, and solid waste management sanitary landfill disposal sites will be
undertaken on a turnkey basis. Where the cost, insurance, and freight or ex-factory cost of goods and
supplies for permanent works of one package is estimated to equal or exceed 60%, such procurement
package should not be treated as a civil works package. Equipment, materials or civil works costing
$100,000 or less including for use by community organizations or NGOs for the slum improvement
and poverty alleviation activities related to Community Infrastructure Fund (CIF) and Poverty Social
Fund (PSF) will be procured following the State’s applicable procurement procedures acceptable to
ADB.

11.3.2 Disbursement Procedures

The loan proceeds will be disbursed in accordance with ADB’s Loan Disbursement Handbook and
Interim Guidelines for Disbursement Operations, LIBOR-Based Loan Products. An imprest account
will be established at the Reserve Bank of India and to expedite implementation of the Project through
the timely release of loan proceeds. It is proposed that a second-generation imprest account (SGIA)
will be opened immediately, in compliance of the State Government, with prescribed procedures as
agreed-upon by the Government of India (the Borrower) and ADB. Under the SGIA, the controller of
aid accounts and audit (CAAA) will pass on the rupee equivalent of ADB’s imprest advance to the
EA through the budgetary mechanism. The EA will maintain the advance in a separate commercial
bank account and withdraw from it only the eligible portion of expenditure. The SGIA would be
managed, replenished, and liquidated in accordance with the Loan Disbursement Handbook and the
detailed arrangements agreed to by the Borrower and ADB. The initial amount to be deposited in the
imprest account will not exceed the lesser of the equivalent of six months expenditures or 10% of loan
amount. The initial and subsequent amounts to be deposited in the SGIA will be determined by ADB
in consultation with the Borrower.

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11.4 Procurement Packages and Implementation

11.4.1 Procurement Packages

The sub-project components will be implemented in a number of separate packages, which are
summarized in Table 11-1 with further details provided in Annex A.

Table 11-1: Proposed Contract Packages - Thiruvananthapuram

Package Package Name Estimated Completion Type of
Code Base Cost Time Contract
US$ Mill (Months)
Water Supply Improvement
Not included in KSUDP - Under JBIC funding - - -
Sewerage & Sanitation Improvement
Rehabilitation of existing city sewerage and ICB
TVM-SS-01 7.04 42
extension to Coastal Area Item Rate

Construction of 120 mld Sewage Treatment Plant at ICB

TVM-SS-02 (8.83) 30
Valliyathura (Lot 1 of Single Package) Turn Key
LCB
TVM-SS-03 Sewer House Connections 3.44 24
Item Rate
Supply of Sanitation Maintenance Equipment
ICB
EQU-SS-01 (Part of single procurement package covering all (0.22) 12
Item Rate
project cities to be organized through the PMO)
Urban Drainage Improvement
LCB
TVM-DR-01 City Wide drainage improvement 1.60 30
Item Rate
Solid Waste Management Improvement
Not included in KSUDP - Under CRDP - - -
Roads and Transportation Improvement
LCB
TVM-RT-01 Upgrading and improvements of 6 priority city roads 6.12 42
Item Rate

11.4.2 Implementation Schedule

Beginning loan effectiveness from September 2005, the Project will be implemented over five years.
Prior to this, LSGD with the assistance of the bridging TA consultants will carry out pre-investment /
advance actions to avoid delays that would occur if such actions are taken after the loan effectiveness.
In the first six months after loan effectiveness, the project implementation assistance consultant teams
(PMC and DSCs) will be mobilized at the PMO and PIUs and will establish project guidelines and
procedures. Detailed design for the infrastructure improvement investments will occur in the first
twelve months of the Project following which construction packages will be tendered and awarded.
Construction of urban facilities will commence 12 months from project mobilization. The capacity
building program under the Project will be conducted mainly in the first three years. The
implementation schedule is given in Annex B.

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11.5 Reports, Accounting and Auditing Requirement

11.5.1 Reporting Requirement

The Government of Kerala will provide ADB with quarterly progress reports on Project
implementation. The PMO will be responsible for obtaining and consolidating relevant information
from the respective PIUs. The progress reports will describe physical progress, details of any
modification required to the project implementation schedule, problems encountered, use of
Community Infrastructure Fund and Poverty Social Fund, and an outline of the work for the next
quarter. The report will also provide summary financial accounts of the Project: expenditure during
the quarter, year-to-date expenditure during the quarter, year-to-date expenditure, and expenditure to
date. The progress report is an executive summary of the detailed reports; with format and content
permitting ADB staff to readily capture key information for inputting into the project performance
report (PPR).

11.5.2 Accounting
The PMO and the PIUs will establish and maintain separate accounts and records adequate to identify
the incomes and expenditures related to the Project. They will be assisted by an adequate number of
suitably qualified accounting staff including an accounts officer.

11.5.3 Auditing
Detailed consolidated annual project accounts, as maintained by the PMO, will be audited by
independent auditors acceptable to ADB and will be submitted to ADB within 9 months of the close
of the fiscal year. The annual audit report will include the audit of the imprest account, SGIA, and
SOE procedure, and a separate audit opinion on the use of the SGIA and SOE procedures. LSGD and
the five project city corporations will be made aware of ADB’s policy on delayed submission, and the
requirements for satisfactory and acceptable quality of the audited accounts.

11.6 Project Review

Project performance will be reviewed in a three-tier system. First, the PMC will review progress on
each component and the performance of each city PIU. Monthly performance reports will be prepared
for each project city by the DSC and submitted to the PMO. The EC will conduct the second tier
review during its quarterly meetings. The monthly project performance reviews and major policy
issues will be reviewed and actions to be taken by the respective authorities will be recorded. The
third tier review will be conducted by ADB every 6 months, with the ADB Review Mission visiting
project cities, to discuss major issues with LSGD and the project city corporations and forward their
opinion for action at the state government level.

The project review will be supplemented by a formal comprehensive midterm review with the
participation of senior Central Government and State officials as well as ADB staff – when detailed
design is completed and major contracts have been awarded and started. Following the review,
corrective measures, as appropriate, will be introduced to remedy any identified weaknesses.

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11.7 Project Performance Monitoring System

The Project Performance Monitoring System (PPMS) forms an essential part of Project
Implementation and is a systematic set of procedures aimed at monitoring Project progress. The
Project performance is measured through a set of defined indicators, which assist in evaluating the
Project’s achievement in terms of the goals, purpose and outputs established in the Draft Project
Framework. The responsibility for ensuring that the project performance monitoring system (PPMS)
is established and undertaken rests with the PMO. PPMS indicators broadly cover (i) physical
progress of infrastructure works; (ii) institutional development and capacity building; and (iii) impact
assessment. Further details on PPMS are provided in Volume 1 – Main Report.

11.8 Long-Term Sustainability

In the decentralized perspective and in line with GoK’s Urban Policy and Action Plan, 2002, it is
proposed that a City Planning and Engineering Department in the Municipal Corporation will be best
equipped to carry out future project development, implementation and asset management. The Project
Implementation Unit proposed for KSUDP implementation will draw staff from various State Line
Departments. Through the Project period and with adequate training/capacity building initiatives, it is
envisaged that the PIU staff will be well equipped to oversee long-term asset creation and service
provision in the sectors of water supply, sewerage, urban drainage, solid waste management, and
urban roads and traffic management.

The KM Act, 1994, provides the legislative framework for ULBs to undertake urban planning and
takeover water supply and sewerage assets within its jurisdiction. Based on policy directives under
GoK’s Urban Policy and Action Plan, 2002, and State Finance Commission recommendations, it is
proposed to merge the PIU with the Corporation’s Engineering Department. The strengthened
department will oversee spatial planning, infrastructure development and construction, and solid
waste management. This arrangement will ensure long-term sustainability of KSUDP and provide for
complete decentralization of infrastructure provision and urban basic service delivery.

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12. COST ESTIMATES AND FINANCING PLAN

12.1 Cost Estimates
The list of sub-project components was agreed upon with the Executive Agency (EA) and the
Thiruvananthapuram Municipal Corporation (MC). This agreement was based on various criteria and
priority needs. Improvement of the urban infrastructure is the top priority of the MC.

The total cost of the sub-project, including physical and price contingencies, is estimated at
Rs.1,829.2 million (about US $35.8 million). The foreign exchange portion of the sub-project cost is
estimated at Rs.427.7 million (about US $8.4 million or 24% of total sub-project cost) with the
balance representing the local cost portion. The local cost component is quite high as most of the
equipment and construction materials are indigenously produced and are readily available. Table 12-1
summarizes the cost estimates. Detailed cost estimates are presented in Annex C.

Table 12-1: Summary of Sub-Project Cost Estimate

(Rupees Million) (US$ Million) % Base

Components
Local Foreign Total Local Foreign Total Costs

Part A - Urban Infrastructure

Improvement
Sewerage & Sanitation 745.5 118.1 863.5 17.1 2.7 19.8 66.0
Urban Drainage 52.6 17.5 70.0 1.2 0.4 1.6 5.3
Roads & Transportation 94.3 173.3 267.6 2.2 4.0 6.1 20.4
Total - Part A 892.3 308.8 1201.1 20.5 7.1 27.5 91.7
Part B – Urban Management &
0.0
Institutional Development
Institutional Development 14.2 0.0 14.2 0.3 0.0 0.3 1.1
Total - Part B 14.2 0.0 14.2 0.3 0.0 0.3 1.1
Part C – Sub- Project
0.0
Implementation Assistance
Design and Construction Supervision
78.5 0.8 79.3 1.8 0.0 1.8 6.1
Consultants
Incremental Administration (at PIU) 14.7 0.0 14.7 0.3 0.0 0.3 1.1
Total - Part C 93.2 0.8 94.0 2.1 0.0 2.2 7.2
Total Base Costs (A+B+C) 999.7 309.6 1,309.3 22.9 7.1 30.0 100.0
Physical Contingencies 70.9 22.2 93.1 1.6 0.5 2.1 7.1
Price Contingencies 330.9 95.9 426.8 2.8 0.8 3.7 12.2
Total Sub-Project Costs 1,401.5 427.7 1,829.2 27.4 8.4 35.8 119.3
a) At November 2004 prices
b) Physical contingencies are 7.5% on civil works and 5% on others, represent about 7% of the base cost.
c) Price contingencies are provided at 2.4% for foreign exchange and 6% for local currency costs.
d) Includes taxes and duties estimated at US$2.6 million (7.3% of Project Cost).
e) Totals may not add due to rounding.

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12.2 Financing Plan

The borrower of the ADB loan will be the GoI. In accordance with the new procedure (under
finalization), it is assumed that the GoI will on-lend the proceeds of the ADB loan to GoK in local
currency. The loan portion will carry interest at the same rate as ADB is charging GoI, (the current
on-lending rate has been assumed on this basis pending finalization of the same at GoI) with similar
repayment terms as between the ADB and GoI, i.e. 25 years, including a five-year grace period.

Under the Government’s new sub-lending procedure, GoK would further sub-lend the proceeds of the
GoI assistance to the Project MCs in the form of loan. This loan portion would carry interest at the
same GoI on-lending rate with similar repayment terms as between the GoI and GoK. In such a case,
GoK would pass on to the MCs an amount equivalent to US $29.4 million (about Rs.1,280 million). It
is assumed that the remaining 30% (about Rs.548.6 million) would be contributed by the GoK and
MCs from its own resources in equal proportions. Table 12-2 summarizes the city level financing
plan if the new sub-lending procedure is used. At city level, the new sub-lending procedure translates
to a 70-15-15 (loan-grant-equity) financing mix.

Table 12-2: City Level Financing Plan (Rs. Million)

Particulars Local Foreign Total Percent

ADB Loan (70%) 852.74 427.72 1,280.46 70.0%
Grant to MC (50% of 30%)-Equity 274.38 274.38 15.0%
MC Contribution - Equity 274.38 0.00 274.38 15.0%
Total 1,401.50 427.72 1,829.23 100.0%

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13. FINANCIAL ANALYSIS

13.1 General
Detailed financial analyses were conducted to examine the financial viability of the revenue
generating subprojects. The analyses were undertaken in accordance with ADB's Framework for the
Economic and Financial Appraisal of Urban Development Sector Projects. Financial Internal Rates of
Return and Average Incremental Financial Costs were calculated and sensitivity analyses were carried
out for each subproject. The proposed tariff levels were assessed to ascertain their affordability to the
beneficiaries, in particular the low-income group and poor households, i.e. those below the poverty
line. Financial projections for the MC were also performed to determine the financial capability of the
MC to implement and operate the subprojects on a sustainable basis.

13.2 Assumptions Used in Financial Projections

Institutional Arrangement. Water and sewerage are currently the responsibility of the Kerala Water
Authority (KWA) while the Kerala Municipalities (KM) Act 1994 and the Decentralization of Powers
Act 2000 empower the urban local body (ULB) to undertake future water and sewerage service
provision. GoK’s Minor Irrigation Department maintains primary drainage channels / canals while the
ULB maintains secondary / link drains and roadside drains. Based on the ownership of roads, the
State Public Works Department or the ULB maintain their respective stretches. Solid waste
management is carried out by the ULB.

Although the KSUDP subprojects will be implemented through the MC PIU, the institutional
arrangements used for the financial projections and analysis of the subprojects are based on the
proposal as outlined in Chapter 5 Volume 7. These are:

Sub-Project Components Proposed Responsibility

a. Water Supply
1. Undertaken by JBIC Kerala Water Authority
b. Sewerage and Sanitation
1. Rehabilitation of existing sewerage -350,000 persons
Kerala Water Authority
2. 120 MLD STP for existing and extension sewerage
1. Interceptor sewers along TS canal and extension of sewerage in coastal
areas -150,000 persons Municipal Corporation
2. Supply of sanitation and sewer maintenance equipment
c. Urban Drainage
1. Rehabilitation of existing culverts, construction of by-pass culvert, silt pits,
Municipal Corporation
etc. and widening of Pazhavangadi Thodu (main canal)·
1. Improvement of other secondary drains Municipal Corporation
d. Solid Waste Management
1. Under Capital Region Development Program -
e. Urban Roads / Transport
1. Capacity augmentation (widening) of 6 critical roads – totaling 22.5 km Municipal Corporation

During the project implementation period until the actual transfer of responsibility, KSUDP and
KWA will build the capacity of MC staff in sewerage asset planning and management. Additionally,

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KWA in coordination with the MC will identify and map the existing sewerage assets within the MC
area jurisdiction, conduct asset condition survey and valuation in preparation for future transfer the
assets to the MC.

Financial projections performed for the MC, reflecting the proposed institutional arrangements
discussed in the preceding paragraphs, consist of projected revenue receipts and revenue expenditures
during the assumed implementation period (FY 2005-06 to FY 2010-11) plus 10 years after project
completion. The projected revenue receipts include all receipts from own source tax income like
property and entertainment taxes and own source non-tax income like direct user charges and income
from municipal properties; and all revenue transfers from the State Government in the form of
assigned and shared taxes and grants-in-aid. The projected revenue expenditures include all recurrent
expenditures, including those of the subprojects, to be met from revenue receipts. The financial
projections also include the MC’s assumed equity contribution to be met from its own resources in
accordance with the financing plan.

Property Tax. The assumptions used for the projection of property tax income include: (i) the
number of taxable properties will increase by 1.0% annually; (ii) in FY 2005-06 and every 10 years
thereafter, property survey will be undertaken resulting to an increase in number of properties by 5%
for those years; (iii) revision of annual rental value (ARV), which has been long overdue as mandated
by law, will increase ARV by 60% to take effect in FY 2007-08; (iv) the revision of ARV every 4
years in accordance with the law will be implemented and ARV will increase by at least 20%; and (v)
overall collection efficiency at about 80% will be achieved gradually with improved systems and
procedures by FY 2007-08 and sustained over the forecast period.

Other Own Source Income. Profession tax, entertainment tax, other municipal taxes, receipts from
municipal properties, license fees and other miscellaneous own source income are projected to
increase equivalent to the assumed inflation rate of 6% over the forecast period.

State Government Revenue Transfers. Assigned and shared taxes and grants-in-aid are estimated to
increase at 6% over the forecast period. Starting FY 2011-12, the initial year of KSUDP loan
repayment, additional grants shall be provided equivalent to the portion of debt service repayments.

Revenue Expenditures. Projected salaries, establishment costs, operation and maintenance costs of
existing municipal services and facilities are based on actual and budgeted financial data. These
existing costs are estimated to increase equivalent to the assumed inflation rate of 6% over the
forecast period. The operation and maintenance costs for the new works are based on engineering
estimates taking into account the size of the treatment facilities, length of the pipe network, roads and
drains maintained, volume of water produced and wastewater treated, volume of solid wastes
collected and disposed, and number of population served. Operation and maintenance unit costs for
the new works are estimated to increase equivalent to the assumed inflation rate of 6% over the
forecast period.

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13.3 Cost Recovery

Water Supply. Although water supply is not a subproject in Thiruvananthapuram under KSUDP, a
discussion of cost recovery assumptions on water supply in the MC is essential as it has a direct
relation on the future cost recovery of the sewerage subproject proposed under KSUDP.

The existing KWA tariff came into effect on 1 April 1999 but has not been revised since. Under the
existing tariff, KWA operation is highly subsidized by the State Government. The revenues collected
from water sales represent only about 53% of operation and maintenance cost. KWA had requested
the State Government in January 2000 to increase the water tariff effective 1 April 2000 and to allow
KWA to revise the water tariff from time to time corresponding to the increase in power tariff. The
State Government is yet to take a decision on this request.

As part of the Financial Improvement Action Plan (FIAP), it is proposed that KWA’s request for a
50% tariff increase be approved by the State Government with effect in 2006-07. Another increase of
50% is proposed in the financial year 2009-10 before the project end year. Thereafter, it is proposed
that tariffs should increase regularly every 3 years by at least 22% (3% above the compounded growth
of assumed inflation). It is envisaged that the periodic tariff increases coupled with the reduction in
NRW through the JBIC funded project will gradually eliminate State operating subsidies on
completion of implementation of the project.

It is assumed that MC will continue not to collect any charges from street tap users for practical and
affordability considerations. The low-income group and poor households are the major users of street
taps. The MC, however, will institute control measures for the use of street taps to avoid wastage. The
current connection fee is assumed to remain the same to make it affordable and encourage shift to
house connection.

Sewerage. Presently, KWA does not impose monthly user charge for customers with sewer
connections. However, it collects connection fee at the rate of 10% of estimated cost or a minimum of
Rs.500 for domestic, Rs.1,000 for non-domestic and Rs.2,500 for industrial. Like water supply,
sewerage operation is subsidized by the State Government.

As part of the FIAP, it is proposed that at the start of FY 2009-10 a monthly sewerage charge will be
collected from customers with sewer connections. For the existing sewerage systems which will be
operated by KWA until future transfer to the MCs, it is proposed that a 40% sewerage surcharge be
included in the KWA water bill.

For the new sewerage systems which will be operated by the MCs, it is proposed that there will be a
fixed monthly sewerage surcharge. Assuming 135 lpcd water supply and average household size of 5
this sewerage surcharge would be Rs.90 per month per connection until end of project. Thereafter, it
is proposed that the sewerage surcharge should increase regularly every 3 years by at least 22% (3%
above the compounded growth of assumed inflation). When water distribution responsibility is
transferred from KWA to the MCs, it is proposed that a 40% sewerage surcharge be included in the
MC water bill.

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With this surcharge of 40% on prevailing water tariff, it is envisaged that there will be full recovery of
O & M cost thus requiring no State support in the form of operating subsidies post project
implementation. The Project includes sewer house connections as part of the sewerage component to
ensure connection and utilization of the new investment. The current fee for future connections (post
project) is assumed to remain the same to make it affordable and encourage connection to the system.

13.4 Financial Internal Rate of Return

The financial viability of a subproject is assessed by comparing the subproject’s Financial Internal
Rate of Return (FIRR) with the Financial Opportunity Cost of Capital (FOCC). As proxy for the
FOCC, the Weighted Average Cost of Capital (WACC) of the subprojects in real terms is used. FIRR
is the discount rate that equalizes the present values of costs and revenues over the subproject life
while the WACC represents the cost incurred by the MC to implement the subprojects.

The WACC of the subprojects is 4% (real terms). The calculation of the WACC is shown in the table
that follows.

Table 13-1: Weighted Average Cost of Capital

Particulars Grant Equity Total
Weight (%) 70.00% 30.00% 100.0%
Nominal Cost (%) 0.00% 10.00%
Tax Rate (%) 0.00% 0.00%
Tax Adjusted Nominal Cost (%) 0.00% 10.00%
Inflation Rate (%) 6.00% 6.00%
Real Cost (%) 0.00% 3.77%
Minimum Rate Test (%) 4.00% 4.00%
Weighted Component of WACC (%) 2.80% 1.20%
Weighted Average Cost of Capital (Real) 4.00%

FIRR was calculated for the revenue generating sewerage subproject. The assumptions and approach
used in the calculation of the FIRR include: (i) all revenues and costs are stated at constant November
2004 prices; (ii) all revenues and costs are calculated on an incremental basis, i.e. difference between
“with project” and “without project” situations; (iii) subproject capital expenditures are recognized at
the time they are incurred; and (iv) equipment replacement costs have been included every 10 years.

Sensitivity analyses were also carried out to determine the possible effects of adverse changes on the
subprojects. The adverse changes are: (i) 10% increase in capital costs; (ii) 10% increase in O&M
costs; (iii) 10% decrease in revenues; and (iv) one year delay in benefits.

The results of the FIRR calculation and sensitivity analyses are summarized in the table below. The
details of the calculation and analyses are in Annex E.

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Table 13-2: Summary of Financial Evaluation

Component NPV @ 4% FIRR, SI & Base Case Capital O&M Revenues Benefits
Rs. Million SV Costs + Costs + - 10% Delay by
10% 10% One Year
Sewerage (897.66) FIRR (%) (11.6)% (12.1)% (13.9)% (14.8)% (12.3)%
SI
SV (%)
NPV = Net Present Value
SI = Sensitivity Indicator (ratio of percentage change in NPV to the percentage change in a variable)
SV = Switching Value (percentage change in a variable required for the NPV to become zero)

The sewerage subproject has a negative FIRR due to high investment costs and low sewerage charge.

13.5 Average Incremental Financial Cost and Subsidy

In setting the tariff, the appropriate target level to achieve subproject financial adequacy and
sustainability is the long run marginal (LRM) cost which includes both the incremental investment
and O&M costs. The Average Incremental Financial Cost (AIFC) is regarded as an approximation of
the LRM cost. The AIFC for each subproject was calculated by dividing the present value of the
incremental subproject costs streams (capital and O&M) by the present value of the incremental
volume of wastewater flow. The costs and quantity streams were both discounted at the WACC of
4%. The following table summarizes the calculation of the AIFC, its relation with the average tariff
and the resultant financial subsidy.

Table 13-3: Average Incremental Financial Cost

Particulars Amount
PV of Project Costs @ 4% (Rs. Million) 1,771.78
PV of Project Revenues @ 4% (Rs. Million) 462.50
PV of Quantity* @ 4% 90.93
AIFC** 19.49
AIFC (Rs./KL) for O&M 3.21
Average Tariff** 5.09
Financial Surplus (Subsidy)** -14.40
AIFC Recovery (%) 26.1%

The average tariff of the sewerage subproject could not cover fully all its costs.

Table 13-4: Subsidy Analysis

Particulars Industrial Commercial Domestic Standpost
Sewerage
Average Water Tariff (Rs./KL)* 16.46 15.38 7.47 0.00
Average Sewerage Tariff (Rs./KL) 6.58 6.15 2.99 0.00
AIFC (Rs./KL) 19.49 19.49 19.49 0.00
Financial Surplus (Subsidy) (Rs./KL) -12.90 -13.33 -16.50 0.00
AIFC Recovery (%) 33.8% 31.6% 15.3% 0.00
Average O&M Cost (Rs./KL) 3.21 3.21 3.21 0.00
O&M Cost Recovery (%) 205.1% 191.7% 93.1% 0.00
* Assumed same as in Kochi; water is not a KSUDP subproject in the MC

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The above analysis indicates that sewerage O&M costs for domestic customers with sewer
connections are subsidized. This subsidy is a result of the low rate proposed to be set by the State
Government for sewerage charge to encourage connection to the system and attain its environmental
objectives.

13.6 Beneficiary Affordability

Willingness to Pay (Survey Results). For survey purposes, the households were categorized into 6
income groups as explained in detail in Chapter 3 (Socio-Economic Profile). The 6 household
categories are: High Income Group (HIG), Middle Income Group (MIG), Low Income Group (LIG),
Upp11er crest of the Poor (UP), Just above Vulnerable (JV) and Most Vulnerable (MV). The
composition of the population by income group21 is as follows: HIG (6%), MIG (34%), LIG (39%),
UP (7%), JV (7%) and MV (7%).

The results of the survey did not specify an amount that each group is willing to pay for improved
water supply and sanitation services. The survey however indicated a low willingness to pay among
the poor and a bit higher willingness to pay from the non-poor for obvious financial reason. The low
willingness to pay for improved services among the poor is largely due to: (i) relative satisfaction with
the present water supply and sanitation services; (ii) use of water from street tap, which is the major
source of water among the poor, is currently free of charge; and (iii) respondents’ view that
government has the responsibility to provide the services to its residents.

Affordability Analysis. An analysis was undertaken to determine if the beneficiaries, in particular the
LIG and poor households, could afford the proposed tariff charges. The generally accepted guideline
is that the combined charges for water supply and sanitation should not exceed 5% of household
income. The average household income gathered in the socio-economic survey (September 2004) and
the assumed water usage in 2010 were used in the analysis. The analysis tested the projected tariffs
that would prevail in 2010, increased twice after 2004 (by 50% in 2006, 50% in 2009-10 and 22% in
every three years thereafter).

Table 13-5: Household Affordability Analysis

HH Mean Water Usage in Water Charge*** in 2010 Sewerage Charge in 2010
Income Income* 2010 ** at 2004 Price at 2004 Price
Group Rs./Mo. KL/Mo. Rs./Mo. % of Rs./Mo. % of
Income Income
HIG 41,766 40 215 0.5% 86 0.2%
MIG 7,968 30 133 1.7% 53 0.7%
LIG 3,823 20 83 2.2% 33 0.9%
UP 3,274 16 63 1.9% 25 0.8%
JV 2,303 14 53 2.3% 21 0.9%
MV 1,793 12 43 2.4% 17 1.0%
* Source: September 2004 survey
**Assumed same consumption pattern as in Kochi; water is not a KSUDP subproject in the MC
** Assumed same as in Kochi

21
Source: State Planning Board “Economic Review 2002”.

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The results of the analysis show that the proposed tariff charges are within the 5% affordability limit.
If the poor households (MV, JV and UP) would want to continue sourcing their water from the street
tap, their monthly charges would even be less since water from street tap would remain to be provided
free of charge. No affordability problems therefore are foreseen for the proposed tariff charges.

13.7 Project Sustainability

In the case of the sewerage subproject, sewerage charges would be adequate to cover the full O&M
cost of operations. For the non-revenue generating subprojects, their respective O&M costs would be
covered fully through the MC’s budget. The cash flow statements of the MC from FY 2005-06 to
2020-21 detailing the subprojects’ revenues, O&M cost and operating subsidy are presented in
Annex E.

The revenue enhancement measures outlined in Chapter 6 (Municipal Finance) and the cost recovery
proposals described earlier for revenue generating subprojects will ensure sustainability of the
proposed subprojects. Periodic adjustments of own source revenue such as property tax, license fees
and direct user charges are vital for the sustainability of the subprojects. The State Government must
allow the MC to revise local taxes, fees and charges regularly in accordance with prescribed
procedures and within limits set by law to make the MC less reliant on State subsidies. A Financial
Improvement Action Plan in Annex D outlines the actions and steps during the implementation and
post-implementation periods to ensure the sustainability of the subprojects’ operation by the MC.

The following table summarizes the results of the financial projections for the MC from FY 2011-12
to 2016-17, the critical years when the MC starts repaying the KSUDP loan obligation. The detailed
financial statements are presented in Annex C.

Table 13-4: Summary of Projected Financial Position

Particulars 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17
Revenue Receipts 746.8 790.4 826.1 862.2 948.2 1,003.3
Revenue Expenditures 540.9 572.9 598.6 634.5 672.5 712.9
Revenue Surplus Before Debt Service 205.8 217.6 227.5 227.7 275.6 290.4
Debt Service 136.2 132.6 129.0 125.3 121.7 118.1
Revenue Surplus After Debt Service 69.7 85.0 98.5 102.3 153.9 172.3
Cumulative Revenue Surplus 1,482.1 1,567.1 1,665.7 1,768.0 1,921.9 2,094.2
Debt Service Ratio 1.5 1.6 1.8 1.8 2.3 2.5

The results of the financial projections show that the MC could generate sufficient revenues to meet
full O&M costs and debt service obligations over the forecast period. The MC has a healthy financial
position that could sustain the operation of its subprojects over their economic lives. The annual
DSCRs exceed 1.3 throughout the projected period.

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14. SUB-PROJECT RISKS AND ASSUMPTIONS

Every project has its risks, and these can be much greater and numerous with a multi-city, multi-
sector project involving a multitude of stakeholders and responsible authorities. However, early
acknowledgement of the potential risks will help in mitigating or even eliminating the problems that
they may cause during project implementation and beyond. The potential risks and assumptions come
in a number of different categories and are classified below for better appreciation.

14.1 Physical Component Risks

„ Land transfers and affected person (AP) compensation agreed and completed before scheduled
construction;
„ Temporary relocation of street vendor and hawkers likely during civil works construction;
adequate provision for compensation to be allocated in the Project;
„ Different sector contract conflicts to be avoided through careful contract management and
supervision. Tender and contract documents to clearly specify contractor responsibilities;
„ Environmental clearances completed before scheduled construction;
„ Environmental pollution and nuisance to the public to be minimized during construction through
diligent site supervision and monitoring. Tender and contract documents to clearly specify
contractor responsibilities;
„ Contractors perform competently, to time and budget; and
„ Municipal Corporation (MC) may not have the resources or skills to manage the operation of the
new facilities (mainly STP and sanitary landfill sites) in an environmentally sound way.

14.2 Policy Risks

„ State and local governments’ commitment to necessary decentralization reforms in urban
planning and management to provide improved services;
„ GoK continues to provide adequate guidance and capacity building to support the devolution
process of decision making and financial independence of the urban local bodies;
„ Transfer of water supply and sewerage assets to local self governments not matched by re-
structuring and adequate staffing of City Planning and Engineering Departments; and
„ Political acceptance of required changes in tariffs, taxes, and rates.

14.3 Institutional Risks

„ GoK and MCs to ensure that PIUs are fully staffed and capable of undertaking duties prior to and
during project implementation;
„ To maintain effective management during project implementation the project leadership at
municipal corporation level should remain constant, for at least the first 3 years;
„ Delays will occur unless there is timely recruitment and satisfactory performance of Design and
Supervision consultants;

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„ Project ownership will suffer unless there is effective consultation with stakeholders and other
government agencies;
„ Public awareness and community mobilization programs must be effective for getting the
participation of local stakeholders into implementation of the institutional development program;
„ Adequate training opportunities for elected officials and municipal staff must be available;
„ Implementing agencies must be amenable to capacity building; and
„ There should be no legal obstacles to poor-settlement upgrading.

14.4 Social Risks

„ Adequate training facilities and technical support system must be available to help Municipal
Corporation in implementing poverty alleviation activities;
„ Mayors must actively support the initiatives under the poverty alleviation component;
„ Poor communities must be willing and able to participate in city management and project
planning activities;
„ Investment provided by the Project should be converged with other programs to target the urban
poor more effectively and for maximum benefit;
„ Improved services will only benefit the urban poor and vulnerable groups if included in the
physical design and if any financial cost recovery is affordable; and
„ Project funds must not be diverted from the social programs to pay for loan charges.

14.5 Financial Risks

„ Financial Improvement Action Plan not implemented to scale or schedule necessary for sustained
operation and maintenance;
„ Willingness of beneficiaries to pay for proper management, maintenance and operation of
infrastructure facilities;
„ Tariffs for services not set at appropriate levels or collected efficiently; and
„ Un-timely provision of counterpart funds.

14.6 Economic Risks

„ Overrun of project construction costs due to delays;
„ Indirect economic costs are significant, e.g. negative environmental impacts on agricultural or
fisheries production, net loss of income due to shutdown of street vendors/hawkers;
„ Underachievement of project outputs, i.e. population coverage of improved services is below
target or infrastructure improvements not as effective as planned;
„ Effective demand for the services provided by the improved infrastructure is less than projected
due to lack of consumer affordability or willingness to accept change; and
„ Operation and maintenance of the infrastructure and equipment provided by the Project are not
funded and/or carried out at levels sufficient to sustain project benefits.

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