Kerala’s fisherfolk struggle for title deeds amid regulatory confusion (2025)

The absence of pattayam (land title deeds) has left many across nine coastal districts in a precarious existence – vulnerable to eviction, denied access to crucial government benefits, and powerless against development projects that encroach on their traditional spaces.

Synopsis: Thousands of fisherfolk across Kerala’s coastal districts continue to live without land title deeds, leaving them vulnerable to eviction, lack of access to government benefits, and unable to access housing or financial support. A recent Kerala Assembly Committee report has spotlighted the legal, environmental, and bureaucratic hurdles preventing secure land ownership for these communities. The panel has called for urgent reforms, including amendments to land laws and decentralised approval processes, to protect the livelihoods and rights of fishing families.

For generations, Kerala’s fisherfolk have lived by the rhythm of the tides, casting their nets into the sea that sustains them.

Yet, while they have an unshakeable bond with the ocean, they remain strangers to the land they call home.

The absence of pattayam (land title deeds) has left many across nine coastal districts in a precarious existence – vulnerable to eviction, denied access to crucial government benefits, and powerless against development projects that encroach on their traditional spaces.

Now, a special report by the Kerala Assembly Committee on the Welfare of Fishermen and Allied Workers, titled Report on the issues arising in granting land title deeds to coastal fishing communities, has put the spotlight on this long-standing injustice, urging action to secure their rights before the rising tides and shifting policies wash away their fragile stability.

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Key observations

The committee, in its report, has highlighted serious challenges faced by Kerala’s fishermen in securing land titles, despite living in coastal areas for generations.

The committee, after reviewing evidence from the Revenue and Environment Departments, found that legal, environmental, and bureaucratic hurdles have left thousands of fisher families in a state of uncertainty.

One of the biggest obstacles is the Coastal Regulation Zone (CRZ) framework.

While CRZ norms do not prohibit land allotment, they require the Kerala Coastal Management Authority’s approval for any construction.

This means that even when fishermen receive land titles, they are often unable to build houses. The committee observed that this contradiction has left many in a difficult position, unable to access housing loans or government assistance.

Another major roadblock is disaster vulnerability. Authorities are hesitant to grant land titles in coastal areas due to the increasing risks posed by climate change. The Port Act also prevents land allotment within port limits, further complicating the issue.

The Kerala Land Assignment Rules 1964, which restrict land titles within 100 feet of the high-water mark, pose another legal challenge.

Errors in land classification have worsened the situation, leading to unnecessary rejections. The committee has called for urgent policy reforms to ensure fishermen receive secure land ownership without disrupting their livelihoods.

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Amending outdated land rules

The nine-member committee headed by Alappuzha MLA PP Chitharanjan, upon reviewing land titles for Tsunami Housing Nagars in the state, has recommended amending key land laws to address obstacles in granting ownership rights to flat residents.

The panel noted that while 2,982 titles have been issued across Thiruvananthapuram, Kollam, Alappuzha, Ernakulam, Thrissur, Malappuram, Kozhikode, and Kasaragod, technical issues persist for those residing in apartment complexes.

Unlike individual houses, flats are built on undivided land, making it difficult to allocate separate plots to each resident. The committee suggested modifying the Kerala Land Rules, 1964, to enable title distribution among multiple owners within a single subdivision.

Additionally, the panel pointed out the complications in tax collection, as tax certificates must be issued individually to dozens of title holders in a single building.

The committee also highlighted delays in issuing title deeds due to the requirement of government approval for vacating land acquired by the Local Self Government Department.

To expedite the process, it recommended amending the Kerala Panchayat Raj (Acquisition and Disposal of Property) Rules, 2005, and the Kerala Municipality (Acquisition and Disposal of Property) Rules, 2000, allowing district collectors to grant approvals instead of waiting for state-level clearance.

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Delays in long-promised coastal road development

The committee, after reviewing land acquisition for Kerala’s coastal highway, has raised concerns over persistent delays, despite many beneficiaries having taken loans to purchase land.

The panel observed that while the government had assured land acquisition within a year, work has yet to begin in several locations. It recommended invoking legal provisions if necessary to expedite the process.

The committee also highlighted the challenge of undeveloped but unavailable land in coastal regions, stressing that the livelihoods of fisherfolk are closely tied to their habitat.

It pointed to land scarcity as a major hurdle in rehabilitation initiatives like the Punargaeham Scheme – which rehabilitates families residing within 50 metres from the High Tide Line to safer dwelling places in the coastal area – and urged the government to conduct surveys to identify suitable land.

The panel suggested leasing outlying land to coastal residents and called for necessary legal amendments to facilitate this.

The findings underscore the urgent need for coordinated efforts from government departments to ensure timely infrastructure development and rehabilitation.

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Vulnerable and voiceless

According to Jackson Pollayil of the Kerala Swathanthra Matsya Thozhilali Federation, the gap in documentation not only threatens fisherfolks’ homes but has created a cascade of economic and social challenges.

“Without pattayam or title deed we have no protection, no recourse, and no voice against the looming development projects that seek to displace us,” Jackson told South First.

He further added, “The lack of documented land rights also hampers access to government benefits. Welfare schemes, disaster relief efforts, and housing subsidies frequently require proof of land ownership. As a result, many fisherfolk are left stranded in times of crisis – such as during cyclones or episodes of coastal erosion – unable to secure the necessary compensation or rehabilitation.”

Further compounding these challenges, the absence of title deeds makes it nearly impossible for families to secure loans. Banks and financial institutions demand land as collateral, leaving many unable to invest in better fishing equipment, repair boats, or rebuild homes after storms. This cycle of poverty forces many to rely on informal, and often exploitative, lending practices.

To him, the precarious situation is not merely an economic issue but also one that undermines the long-term security and stability of the fisher community.

(Edited by Dese Gowda)