M.S. Swaminathan Committee on Management of Coastal Zones

The M. S. Swaminathan Committee on the Management of Coastal Zones was a landmark expert panel established by the Government of India in 2004 to develop a sustainable framework for the conservation and management of India’s extensive coastal ecosystems. Chaired by eminent agricultural scientist Dr. Mankombu Sambasivan Swaminathan, the committee’s recommendations sought to balance environmental protection with the livelihood needs of coastal communities. The resulting report, submitted in 2005, became a cornerstone in reforming India’s coastal regulation policy and led to the formulation of the Coastal Management Zone (CMZ) Notification.

Background and Context

India’s coastline extends over 7,500 kilometres, spanning nine coastal states and two union territories. This diverse coastal environment includes mangroves, estuaries, coral reefs, beaches, and wetlands that support millions of people through fishing, tourism, and agriculture. However, by the early 2000s, rapid industrialisation, unplanned urban expansion, port construction, and aquaculture had caused extensive ecological degradation.
The Coastal Regulation Zone (CRZ) Notification of 1991, issued under the Environment (Protection) Act, 1986, was the first major regulatory framework to restrict and manage development along coastal areas. Although it introduced zoning and development controls, its implementation faced numerous challenges, including inadequate enforcement, ambiguous classification, and conflicts between conservation and livelihood interests.
Recognising these limitations, the Ministry of Environment and Forests (MoEF) constituted the M. S. Swaminathan Committee in July 2004 to review the CRZ framework and propose an improved, people-centred approach to coastal zone management.

Objectives and Scope of the Committee

The primary objectives of the M. S. Swaminathan Committee were to:

• Review the existing CRZ Notification, 1991 and its subsequent amendments.
• Examine the ecological, social, and economic aspects of coastal zone management.
• Recommend strategies for integrated coastal area development that harmonise environmental protection with human welfare.
• Suggest institutional mechanisms for effective coordination among various governmental and non-governmental stakeholders.
• Propose updated classification and regulatory mechanisms that reflect scientific and socio-economic realities.

The committee’s work was guided by the principles of sustainable development, ecological security, and livelihood protection, with particular emphasis on the rights and participation of coastal communities, especially traditional fisherfolk.

Key Recommendations of the Swaminathan Committee

The committee’s final report, submitted in February 2005, proposed several transformative recommendations aimed at integrating coastal governance with ecological and social considerations.
1. Shift from Coastal Regulation to Coastal Management: The committee recommended replacing the restrictive “Coastal Regulation Zone” (CRZ) approach with a proactive Coastal Management Zone (CMZ) framework. This change emphasised conservation through community participation and scientific zoning rather than blanket restrictions.
2. Classification of Coastal Zones: The committee suggested a new categorisation of coastal zones into four distinct zones based on ecological sensitivity and land-use characteristics:

• CMZ-I: Ecologically sensitive and protected areas such as mangroves, coral reefs, sand dunes, and wildlife habitats.
• CMZ-II: Areas under existing human settlements with developed infrastructure.
• CMZ-III: Relatively undisturbed rural coastal areas with limited development.
• CMZ-IV: Coastal areas of islands, including the Andaman, Nicobar, and Lakshadweep groups.

3. Integrated Coastal Zone Management (ICZM): The report strongly advocated an Integrated Coastal Zone Management approach, emphasising ecosystem-based planning across administrative boundaries. It recommended the preparation of regional coastal management plans through participatory methods, involving local governance institutions such as Panchayati Raj bodies and coastal community organisations.
4. Recognition of Livelihood Rights: The committee highlighted the vital role of coastal communities in maintaining ecological balance. It recommended that traditional fisherfolk and coastal populations be granted priority in access to coastal resources and be actively involved in decision-making processes related to coastal development.
5. Institutional Mechanisms: The establishment of National and State Coastal Zone Management Authorities with multidisciplinary representation was proposed to ensure scientific, transparent, and participatory implementation. These bodies would coordinate with local self-governments and environmental agencies.
6. Scientific and Technological Support: The report emphasised the need for scientific data on coastal processes, land-use mapping, and vulnerability assessments. It called for collaboration between research institutions, universities, and local communities to strengthen adaptive management strategies, especially in response to climate change and sea-level rise.
7. Strengthening Legal and Policy Frameworks: The committee proposed updating environmental legislation to include provisions for disaster risk reduction, pollution control, and climate adaptation within coastal management plans. It also called for strong enforcement mechanisms against illegal constructions and environmentally destructive activities.

The Coastal Management Zone (CMZ) Notification, 2008

Following the committee’s recommendations, the Ministry of Environment and Forests drafted the Coastal Management Zone (CMZ) Notification, 2008, intended to replace the CRZ Notification of 1991. The CMZ framework aimed to introduce ecosystem-based management, participatory governance, and scientific zoning in coastal planning.
However, the proposed CMZ Notification faced criticism from several stakeholders, particularly from fishing communities and environmental groups. Concerns were raised that the CMZ provisions could dilute existing protections and open ecologically sensitive areas to industrial and infrastructural projects. As a result, the government decided not to implement the CMZ Notification, opting instead to revise the CRZ framework.

Legacy and Influence on Coastal Policy

Although the CMZ framework was not formally adopted, the M. S. Swaminathan Committee’s influence has been profound. Its emphasis on integrated management, community participation, and climate resilience shaped subsequent coastal policies, including:

• The CRZ Notification, 2011, which incorporated aspects of Integrated Coastal Zone Management and recognised the importance of community involvement.
• The ICZM Project, implemented with World Bank assistance, which adopted several Swaminathan Committee principles in pilot states such as Odisha, Gujarat, and West Bengal.
• Policy initiatives linking coastal zone management with the Blue Economy framework and the National Adaptation Fund on Climate Change (NAFCC).