CHAPTER I1

ORGANISATION AND MANAGEMENT OF FISHERMEN WELFARE AND DEVELOPMENT PROGRAMMES

of the most important aspects of the development efforts o f the country. Allieviation of the under privileged society from the clutches o f poverty and malnutrition, exploitation and diseases was makers. the priority concern of the constitution

The problems of welfare and development became an integral of the country. part of the development administration The constitution, while prohibiting

discrimination against any citizen on t h e g r o u n d s of religion, race, caste etc recommends 'protective discrimination' for

the upliftment of the weaker section.

I . Dtrscllve Principles of Statc Policy, Cunstitutxon of Indta, 1950.

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"Social security is protection furnished society to its members through

by

a series of public measures

against the economic and social distress caused due t o unemployment , invalidity, destitution , social disability and backwardness , oldage and death etc. Thus social security embrace social insurance, social

in b r a o d t e r m s w o u l d assistance, family

benefits , health care and other social services, .The Social

services and related social welfare

s e c u r i t y a n d W e l f a r e S c h e m e s in t h e S t a t e a r e i m p l e m e n t e d through instititutional care measures and non- institutional

The

pathetic

conditions

of

life

of

the

Traditional Fishermen Community in Kerala demand t o p priority in policy formulation. T o improve the plight o f 9.85 lakhs (1991) of Fishermen people constituting about 3 . 3 6 percent o f t h e total population in the State and faced with

exploitation, malnutrition, poverty and diseases must be one of the priorities of the policy makers of the States Even

after spending huge amounts for their education, protection

2. Go\,.

01'Kcrala

Econorni; Rr.view 1 9 9 1 - S t a t e P l a n n i n g B o a r d . l ' h i r a v a n r n r h ~ p u m

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and upliftment, t h e y a r e said t o be still lagging behind. S t a t e initiative is a n e c e s s i t y f o r t h e s e suffering people.

Upliftment o f these people who a r e illiterate, illtreated, u n c a r e d f o r , e x p l o i t e d , f r u s t r a t e d and a l i e n a t e d m u s t be t h e primary responsibility of a Govt.

T h e G o v t . has untertaken this responsibility of raising the status of the Fishermen Community. There are so many programmes t h r o u g h which central and s t a t e G o v t . attempt to help this weaker section of society . Concrete s t e p s for t h e i r u p l i f t m e n t h a v e b e e n t a k e n u p in all t h e f i v e year plans.

Kerala State

The K e r a l a S t a t e is divided into 14 r e v e n u e districts

But the marine districts are only nine. Table 2 . 1

shows the District wise distribution of the Fishermen Community in Kerala, While the total fishermen population in K e r a l a i s 9 8 5 0 9 7 , t h e m a r i n e s e c t o r p o p u l a t i o n i s 7 6 3 3 8 7 . Out of the 9 marine districts, Thiruvananthapuram registers

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the highest population ( 1 , 6 0 , 3 6 2 ) followed by (107171)

Alapuzha

T h e sea going fishermen population in the s t a t e

is 1 . 5 7 lakhs . Unlike t h e general population there is p r e p o n d e r a n c e o f m a l e s in t h e p o p u l a t i o n o f fishermen.

It

is observed that the proportion o f persons is 6 0 . 3 0 marine

in the age group of work force and dependents percent and 3 9 . 7 0 percent respectively. Among

fishermen the work force is 59.53 percent and among inland fishermen it is 6 3 . 2 p e r c e n t .

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B o t h for t h e marine and inland, t h e major portion o f t h e w o r k f o r c e l i e s in t h e a g e group (25-44) while that of the

d e p e n d a n t s lies in t h e aye g r o u p ( 5 - 1 4 ) Table 2.2 i l l u s t r a t e s the position.

Table 2.2

Source: Department of Fisheries,Govt of Kerala

Literacy and educational attainments are the i n d i c a t o r s o f q u a l i t a t i v e i m p r o v e m e n t s in h u m a n r e s o u r c e s . Even though economically and socially considered t o be backward, t h e fishermen a r e n o t lagging much behind i n

e d u c a t i o n . N e a r l y 6 3 p e r c e n t o f t h e males and 5 9 p e r c e n t
of the females are literate.The male and female literacy rates

o f t h e general p o p u l a t i o n a r e 7 5 . 2 6 per cent and 6 5 . 7 3 p e r cent respectively.

Source: Department o f Fisheries, Govt. of Kerala

In

the

marine

sector

Christian

families

predominate while in the inland sector Hindu families predominate.

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Table 2.3

THE PERCENTAGE DISTRIBUTION O F H O U S E H O L D S B Y R E L I G I O N IN T H E M A R I N E AND INLAND SECTORS

Marine

33.16

30.83

36.01

10000

lnland

65.83

8.30

25.87

100.00

Total

41.25

25.25

33.50

100.00

Source : Dept of Fisheries, Govt of Kerala

C o ~ n m m u n a ld i s t r i b u t i o n h o w e v e r v a r i e s w i d e l y from district t o district. For instance, Christian fishermen

a r e concentrated in Thiruvananthapuram and Alapuzha d i s t r i c t s , M u s i l m s a r e s e e n m o s t l y in t h e n o r t h e r n d i s t r i c t s Malappuram, Kozhikode and Kannur. the situation. Table 2.4 illustrates

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Table 2.4

DISTRIBUTION OF FISHERMEN HOUSE HOLDS BY R E L I G I O N ( M A R I N E S E C T O R )

SI. No. I. 2. 3. 4. 5. 6. 7. 8. 9. 10 11 12. 13. I 4

Dislrict Hindu Muslim Christian Total

1002 Tl~iruva~iatl~apura~~~ Kollsm Patl~;~na~~ilhita Allapuzl~a Kottayam Idukki Ernakulam Thrissur Palakkad Mal;lppuraln Kozhikode Wynild Kannur Kasargodc Total 4611

4557 975

16511 5336

22070 10922

-5948
. .

-592
. .

-8155
. .

-14695

-.
. .

-4929 4514
. .

-3 10 2757

-4793 36

10 0 3 2
7307

-8614 5997

-2 6

-8x90 11244
.

274 5241
. .

-4118 2353 30273

-508
2

2560 3477 32556

7186 5832 98178

35349

Source Dept of Fisheries Govt, of Kerala

It is seen that among fishermen,

38828 belong

t o Scheduled Castes and Scheduled tribes. They form about

Table 2.5 shows

the distribution o f households and population o f Scheduled Castes and Scheduled Tribes (Marine Sector).

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Table 2.5

DISTRIBUTION OF HOUSEHOLDS AND POPULATION O F S C H E D U L E D C A S T E AND S C H E D U L E D T R I B E S . (MARINE SECTOR)

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Administrative Agencies

Fisheries Department is primarily concerned with the formulation, implementation, execution and administration of varlous schemes for the removal of social, educational and economical backwardness of t h e Fishermen c o m m u n i t y in t h e s t a t e

Delegation of powers

Director of Fisheries

1 . A d m i n i s t r a t i v e P o w e r s :- T h e d i r e c t o r o f f i s h e r i e s e n j o y s

wide range of powers and controls the overall administration o f the Department. H e is authorised t o sanction appointments u p t o a n d i n c l u d i n g t h e l o w e s t g a z e t t e d p o s t in e a c h c a t e g o r y , subject t o the Public Service Commission Recruitment Rules. Moreover he is the authority t o sanction the creation of parttime posts paid from contingencies subject to budget provisions.

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T h e D i r e c t o r i s t h e a u t h o r i t y f o r s a n c t i o n i n g all kinds of leave except s t u d y leave, specially disability leave and leave without allowance not exceeding 1 2 0 days t o all affairs under him and also t o make arrrangements f o r additional charge and sanction charge allowances under rule
53 (b) (ii) and (iii) K S R in case where no substitute is

required.

The Director is the authority t o transfer and p o s t all o f f i c e r s w h o m t h e d i r e c t o r o f f i s h e r i e s is c o m p e t e n t to appoint.

Financial powers:

The Director o f fisheries is the authority t o accord sanction for original works upto Rs 5,00,000/(Rupees Five lakhs only) and to sanction maintenance and petty construction and repair works for execution o n a proper estimate in each case without reference t o public works department upto Rs. 25,0001Prepared by BeeHive Digital Concepts for Mahatma Gandhi University

The director of fisheries has the authority t o s a n c t i o n i n v e s t i g a t i o n of arrear claims by t h e A c c o u n t a n t General o f all officers of the Department and under c o n t i n g e n c i e s w h ~ c ha r e n o t m o r e t h a n f i v e y e a r s o l d , t o sanction all cases of temporary withdrawals from PF deposits by subordinate of the Department both in normal cases and in cases requiring special sanction and non refundable withdrawals from PF deposits subject to the other condition and constitution under the rules of the f u n d , t o s a n c t i o n a d v e r t i s e m e n t c h a r g e s u p t o R s . 10001in each c a s e subject t o t h e condition that the rates are a p p r o v e d by t h e Director o f Public Relations, t o sanction purchase o f stiltionary article locally in urgent and unforeseen circumstances upto limit of R s
5001- a t a t i m e

subject t o a m a x i m u m o f R s 50001- per annum subject t o budget provision and subject to observation of stores p u r c h a s e rules, t o sanction purchase o f all kinds o f b o o k s , periodicals and other publication pertaining t o fisheries subject within the budget provision and to incur non-

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recurring c o n t i n g e n t e x p e n d i t u r e u p t o R s 1 5 , 0001- in each c a s e s u b j e c t provision and rules in the Kerala Financial Code.

T h e Director of Fisheries is empowered t o write off i r r e c o v e r a b l e a r r e a r s o f R e v e n u e a n d o t h e r i r r e c o v e r a b l e amount including t h e value of stores upto Rs. 10,0001in

each c a s e subject t o an annual limit of Rs. 1,00,0001- the other conditions off remaining the same and t o sanction write b o o k v a l u e o f R s . 5 0 0 1 - in

of t h e value of s t o r e s t o the

each c a s e an a c c o u n t o f deficiency, d e p r e c i a t i o n o r o t h e r causes provided that a copy of such o r d e r is sent t o t h e

Accountant General with a note of the circumstances which occasioned o r led t o t h e loss. M o r e over he is authorised

to dispose unserviceable boats of assessed value upto Rs.50,0001-.

The Director of Fisheries enjoys power purchase furniture subject to budget the condition that no govt.

to

provision and also t o

agency is able t o supply t h e

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r e q u i r e d f u r n i t u r e in t i m e a n d t h e p u r c h a s e i s m a d e a f t e r inviting competitive quotations to accord sanction

expenditure

on repairs t o m'otor

v e h i c l e s by a p p r o v e d

w o r k s h o p s a t t h e r a t e s a p p r o v e d by t h e A E E , Regional Engineering Workshop u p t o R s . 10,0001- including o f s p a r e p a r t s in e a c h the cost

case without any annual limit, t o

sanction expenditure on repairs of mechanised boats including speed boats upto condition that proper sanctioned Rs.1,00,0001- subject to the

e s t i m a t e should be g o t prepared and

b e f o r e t h e w o r k is e n s t r u s t e d t o any a g e n c y , t o

s a n c t i o n p h o t o g r a p h i c c h a r g e s in t h e p u b l i c i n t e r e s t u p t o Rs.7501- at a time subject to an annual limit o f Rs.50001to sanction expenditure f o r p a r t i c i p a t i o n in e x h i b i t i o n o r

c o n d u c t i n g e x h i b i t i o n a n d s e m i n a r u p t o R s . 1 5 , 0 0 0 / - in e a c h case.

T h e Director of Fisheries is t o execute all contracts, deeds e t c relating t o the department on behalf of the Governor o f Kerala, t o confirm leases o f Fisheries of ri~hts b y s a n c t i o n o r by t e n d e r a s t h e c a s e m a y b e w h e n t h e

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highest rates are

to be accepted t o accept lowest tenders

for the purchase and for the transport of salt for fish curing, to accept lowest tenders for the purchase of gunnies for

t h e transport of salt and such other miscellaneous items upto a maximum limit o f Ks. 10,0001-.

The Director o f Fisheries is the

authority to

a l l o w s u b s i d i e s a t t h e r a t e s a p p r o v e d by t h e G o v e r n m e n t of India subject t o t h e r a t e s t o be framed by t h e State

Government , to sanction loans t o fishermen Co-operative Societies for the accessories subject purchase of fishing implements and

and u p t o a miximum o f Rs.50001- in e a c h c a s e

t o the c o n d i t i o n s laid d o w n in the r u l e s issued f o r

the purpose

T h e D i r e c t o r a t e of I'isheries:

The Department

has

its

head quarters at

T r i v a n d r u m . I t f u n c t ~ o n su n d e r a d i r e c t o r ( I A S C a d r e ) w h o is assisted by a n A d d i t i o n a l D i r e c t o r , M a r i n e e n f o r c e m e n t

and vigilance Police Superintendent Administrative Officer,

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Finance Officer, Deputy Registrar, 3 Fisheries Directors

Deputy

(Marine, Inland, P & M), 2 Statistics Deputy Propaganda Assistant there is a

Directors, 2 Assistant Directors, and one Administrative

Assistant. Moreover

legal officer, Legal officer (Technical) and Co-ordination officer a l s o w o r k n g in t h e D i r e c t o r a t e o f F i s h e r i e s .

F o r t h e administrative c o n v e n i e n c e , s t a t e is divided into 3 regions as Southern region, Central region and Northern region and all these regional officers are

h e a d e d by a n o f f i c e r in t h e c a d r e Joint D i r e c t o r . T h e adiministrative officers o f t h e s e t h r e e r e g i o n s are at Trivandrum, Ernakulam and Kozhikode r e s p e c t i v e l y . An

o f f i c e r in t h e c a d r e o f D e p u t y D i r e c t o r i s in c h a r g e o f the marine districts of Trivandrum, Quilon, Alappuzha, Ernakulam, Thrissur, Malappuram, Kozhikode, in

Cannanore, Kasarg;ode and

in Palakkad D i s t r i c t and Training.

the Ernakulam Backwater and

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But

the

administrative
,

charge

of

the

disrticts Pathanamthitta Azheekode Institute Assistant

Kottayam, Idukky, Waynad,

Regional Shrirnp H a t c h e r y , P o l a c h i r a N a t i o n a l etc are Director. v e s t e d w i t h a n o f f i c e r in t h e r a n k o f

In

the

Indo-German

Reservoir there is

Fisheries a project Co-

Development Project a t h4alampuzha Director

in t h e C a d r e o f j o i n t D i r e c t o r , P r o j e c t

o r d i n a t o r in t h e r a n k o f Managers

Deputy Director, 4 Reservoir Assistant Director, etc. Farm

in t h e c a d r e o f

Engineer, 2 Hatchery Assistants

In

additon

to

this

for

the

Fisheries

Development , there is an agency named 'Fish Farmer's Development Agency' in a l l t h e d i s t r i c t s in Kerala. The

District Collector is the chairinan o f this Agency . The Distr~ct Agency. Fisheries officer is the Chief Executive of this

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F o r t h e Shrimp Farming Development t h e r e is an Agency w o r k i n g in t h e districts Kollam, Alapuzha, Ernakulam, Thrissur, Kozhikode and Cannanore. An

officer in t h e c a d r e o f D e p u t y D i r e c t o r o n d e p u t a t i o n f r o m the Department o f Fisheries will b e in c h a r g e o f this

agency.

There

are 5 fishermen Training centres at

Vizhinjam, Neendakara, Ernakulam, Bepur and Cannanore. The main purpose of these training centres is t o give

occupational training for the fishermen.To give better education t o the wards of the fishermen there are Regional Fisheries Technical High Schools at Valiyathura

(Trivandrum), Alappat (Quilon), Arthungal (Alapuzha), Thevara (Ernakulam), Chavakkad (Thrissur), Thanur (Malappuram), Bepur (Uozhikode), Quilandi (Kozhikode) and Kannur The technical high schools are purely

r e s i d e n t i a l and f o o d a n d

accomodation is free t o them.

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Fisheries D e p a r t m e n t is w o r k i n g jointly w i t h other department of the state especially Harbour

E n g i n e e r i n g , H e a l t h E d u c a t i o n , Harbour, Police and Revenue

Deve1opme:nt

activities

of

the

Fisheries

Department is executed through Matsyafed , (Kerala S t a t e Co-operative Federation for Fisheries Development

Limited), Adak (Agency for Development of Aqua Culture Kerala) and welfare activities through Kerala Fishermen's Welfare Fund Board.

The Kerala Development

State Co-operative Federation (Matsyafed)

for Fisheries

The Kerala State Co-operative Federation for Fisheries Development (Matsyafed) is registered as a Cooperative S o c i e t y with limited liability u n d e r t h e Kerala Cooperative S o c i e t i e s Act 1 9 6 9 . Its registered o f f i c e shall be

at Thiruvananthapuram Its operation shall extend t o the whole Kerala State (Bye Laws of Matsyafed).

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The administration of the Matsyafed is carried out by a duly elected Board of Directors and ex-officio members w o r k i n g in the capacity of secretary to

Government, (Dept of Fisheries, Government of Kerala) Director o f Fisheries, Secretary of Government (FinanceExpenditure), R e p r e s e n t a t i v e o f t h e N . C . D . C and Managing D i r e c t o r . T h e c h a i r m a n is e l e c t e d f r o m t h e b o a r d o f Directors.

The Chief executive of the Federation shall be the Managing Director. The Managing Director shall be responsible for the general administration of the federation and shall e x c e r c i s e s u c h powers and perform such d u t i e s as delegated t o h i m by t h e B o a r d o f D i r e c t o r s f r o m t i m e t o

t i m e in a c c o r d a n c e .with t h e b y e - l a w s o f t h e F e d e r a t i o n . A t p r e s e n t t h e M a n a g i n g D i r e c t o r o f t h e F e d e r a t i o n is a n o f f i c e r in t h e I A S c a d r e .

The Managing Director

is t h e authority t o

conduct the General business of the Federation and to

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i m p l e m e n t t h e p o l i c y a n d p r o g r a m m e s l a i d d o w n by B o a r d of D i r e c t o r s . H e is t h e officer t o s u e and

the

to be sued is t h e

on behalf of the Federation . The Managing Director

a u t h o r i t y t o r e c e i v e all money o n behalf o f t h e f e d e r a t i o n and working funds of the Federation according to the decisions of the Board, to conduct negotiations and make arrangements for the business o f the affiliated t o convene meetings of the necessary. societies and

B o a r d o f D i r e c t o r s as may be

In

the Head Quarters o f

the Matsyafed , the

M a n a g i n g D i r e c t o r i s a s s i s t e d by a G e n e r a l M a n a g e r , Executive (Marketing), Executive (Finance) , Executive (Production and Processing), Executive (Inland Production)., E x e c u t i v e ( P r o j e c t s ; ~, E x e c u t i v e ( H o u s i n g ), C o - o r d i n a t o r , Public Relatives Officer, Hatchery Manager, Accounts

Officer and Fisheries Development Officer.

There are 5 District Fisheries Development Cooperative Limited in Thiruvananthapuram, Kollam,

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E r n a k u l a m , Thrissur and Kannur Districts and 4 District Offices in Xlappuzha, Kozhikodt:,

Malapppuram and Kasargode

'Districts

Moreover there is an Ice and Freezing plant at Kochi Manager, Net complex at Kochi

h e a d e d by a D e p u t ) . R e g i o n a l

u n d e r t h e control of p r o d u c t i o n supervisor, Prawn Hatcher); unit at Kannur Fish hleal and Oil plant a t Azheekode, Fish Farms

at Malappuram, Palaikari and Narakkal, a Fleet section at Irizag a n d f i s h e r i e s T o w n s h i p pojec:t a t V i z h i n j a m .

There are c a p a c i t i e s in the Federation

4 6 9 s t a f f w o r k i n g in d i f f e r e n t In t h e total staff mentioned above,

369 incumbents are of the Matsyafed, 43 officers are on

D e p u t a t i o n and t h e rest o f t h e staff is on Daily Wages, monthly w a g e s , c o n t r a c t a n d o n LWA.

Kernl;i F i s h e r m e n ' s W e l f a r e F u n d B o a r d ( K F W F B )

Kerala Fishermen's Welfare Fund Board was c o n s t i t u t e d on 2 6 . 1 . 1 9 8 6 . This Board came into existence on

t h e b a s i s o f t h e directions c.ontained in Kerala Fishermen Welfare Fund Act 1985.

The Kerala Fishermen's Welfare Fund Board now consists of 8 members, three of them from the representatives of the fishermen community and the are government officials. rest of the 5 members

The Head Qutirters o f the Kerala Fishermen's Welfare fund Board is at Trissur. Offices-the Board Southern There are three Regional Regional Office at

Thiruvananthapuram, Central regional

office at Ernakulam

and Northern regional office at Kozhhikode. T h e districts Thiruvananthapuram, Kollam, Pathanamthitta, Kottayam. Idikki constitutes Southern region, the districts Alappuzha, Ernakulam, Thrissur, Palakkad constitutes central region and the Northern Region is constituted by Malappuram, There are

Kozhikode, Wyanad Kannur and Kasargod.

fisheries villages working under the administrative control of each Regional Offices. The fisheries officers are

a p p o i n t e d in t h e F i s h e r i e s v i l l a g e s .

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T h e C h i e f e x e c u t i v e in t h e H e a d q u a r t e r s commissioner.

is a

T h e c o m m i s s i o n e r i s a s s i s t e d by J o i n t

Commissioner, Secretary, Finance Officer, Junior Executive Office Manager, 2 Senior Assistants, Four Junior assistants. T h e administrative head o f t h e Regional Office is theRegional E x e c u t i v e and h e is a s s i s t e d by J u n i o r E x e c u t i v e Senior

Assistant, J u n i o r As,sistant, Fisheries Officer e t c .

The total strength of the staff working under the various offices o f t h e Kerala Fishermen's Welfare Fund Board is 150. T h e R e c r u i t m e n t o f t h e s t a f f is m a i n l y d o n e by

Deputation from different Government departments including the Department of Fisheries and Kerala Fisheries

Corporation. Only a few were selected on direct recruitment method since till now the rules and regulations regarding

the direct postings have not been-yet formulated.

A g e n c y f o r Development o f A q u a c u l t u r e , K e r a l a ( A D A K )

Agency

for Development of Aquaculture, This project

Kerala (ADAK) was c;onstituted on 2 4 2 . 1 9 8 9

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is a joint v e n t u r e o f t h e Government o f K e r a l a and the Government of Kuwait for the promotion o f Aqua culture.

The

Head

office

of

the

ADAK

is

at

T h i r u v a n a n t h a p u r a n i and t h e r e a r e t w o R e g i o n a l offices at Kannur and Ernakulam respectively. T h e r e is a Farm Office at Poyya (Thrissur Dist) and Ayiramthengu (Kollam District) and field offices at Cherthala and Njarakkal respectively.

T h e m o d e o f a p p o i n t m e n t i s by d e p u t a t i o n f r o m different Government departments. Besides this direct

postings are also being done with approval of the governing body of the ADAK. A staff selection committee is formulated for this purpose.

The capital expenses, Revenue expenses etc, for t h e execution o f t h e project is met by t h e Fisheries Department, Government of Kerala utilising the budgetory provision. In a d d i t i o n t o t h e l o a n facility, t h e D e p a r t m e n t and the

is financing certain joint ventures of the ADAK Department of Fisheries.

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After independence central as well as the state G o v e r n m e n t in d i f f e r e n t p e r - i o d s h a v e g i v e n p r i o r i t y f o r t h e welfare and development schemes to the various walks of people particularly to those under poverty line. S e c t o r is a l s o not a n e x c e p t i o n . Fishel-ies

In K e r a l a welfat-e and

Developlnetlt s c h e m e s a r e being implemented t h r o u g h t h e Department of Fisheries, and agencies like Matsyafed and Kerala Fishermen's Welfare Fund Board. More over Local

level Administration aiso can play a vital role in this field. T h e r e c e n t l y implemented ' P a n c h a y a t h i R a j a n d N a g a r a p a l i k a legislation' has certain PI-ovisions in this regard. only limited powers were given to the local Though

bodies they

c o u l d d o a l o t o f t h i n g s in t h e i m p l e t n e n t a t i o n s t a g e s u c h a s t o find o u t the real beneficiaries and denying t h e exploitative role of the middle men. In other words effective

implementation could be realised with the help of local bodies which is a necessity n o w a days.

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CHAPTER Ill

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