INTERBASIN TRANSFERS OF WATER FOR NATIONAL DEVELOPMENT PROBLEM & PROSPECTS WRD -1996

.........

INTER BA S IN TRANSFERS OF WATER

FOR NATIONAL D EV EL OPMENT

PROBLEMS & PROSPECTS

I

Periyar Dam Forming Part of Periyar - Vaigai Link Constructed in 1896 M[;numentel Example of Inter Basin Transfer

Cover photo

Rural Women Travel Long Distance to Meet Timir Domestic Water Needs

·.WATER RESOURCES DAY - 996

I
/
MARCH 22, 1996
INTERBASIN TRANSFERS· OF WATER

-
FOR NATIONAL DEVELOPMENT

PROBLEMS & PROSPECTS·

INDIAN WATER RESOUR CES SOCIETY
..

FOREWORD
The Ministry of Water Resources and its various organisations have been organising the Water
Resources Day every year since 1986. After 1991 the United Nations also started observing the World Water
Day on the 22nd March every year. The main objective is to focus the attention of the people on issues
concerning water sector, to cause a debate and to get important feed back so that the water sector
strategies can be corrected taking into consideration the feed back.
.n order to give a focus to the public debate, a theme is chosen for the World Water Day and Water
Resources Day every year in India. Accordingly, in the recent past, we looked into the environmental related
p oD.e::1S, the water management problems, etc. We reviewed the performance of the water sector; we
discussed the role of ground water and small dams and we talked about public awareness related issues.
'::1us, the accent was on the current issues and the present. This year, we take a distant look at the future
:::s ~ continum of the present; and in particular bring forth the need or otherwise of inter-basin water
c-Gnsfers. The theme is "Inter basin transfer of Water for National Development: problems and prospects".
Although seemingly we have large water and land resources, their per capita availability is below
the world average. The distribution of water resources in space and time is highly uneven, leading to both
endemic and sporadic problems of water shortages and excesses. A considerable development has taken
place in the past. However, in future the development and management are going to be increasingly difficult
since, unlike in a developed country, water demands are expected to grow rather fast as a combined effect
of the popwation increase and increase in the living standards. This situation may accentuate the natural
inequities. Inter basin transfer of water through inter linking of rivers could be one of the possible options
for achieving a more equitable distribution of our water wealth and its optimal utilisation. Suggestions for·
such an interlinking and for the creation of a National Water Grid have been made from time to time; The
Government too has taken up studies for a National Perspecitve Plan for water resources development.
However, there are varied opinions among the people and apprehensions are also expressed by some
states. These varied opiniohs raise a large number of basic issues which need public appreciation and
debate.
The theme paper on the issue was therefore required to reflect not the current views of the
Government of India but the whole background and the gamut of issues. In this background, the Indian
Water Resources Society was requested, as usual, to prepare a theme paper. I am happy that they have
come up with an excellent one. Ihope that the successful observance of the World Water Day and the Water
Resources Day as also the consequent discussions will stimulate fresh thinking towards a national
consensus on the subject.
Iwish to congratulate, amongst others, the following IWRS members and experts for their valuable
contribution in the preparation of the theme paper:
Authors Group Reviewers' Panel
AD. Mohile e.e. Patel
T.S. Bathija Ramaswamy R Iyer
V.K. Jyothi B.G. Varghese
AD. Bhardwaj R GhOsh
RS. Pathak AB. Joshi
M. Sivadas R Rangachari
Z. Hasan
.

N~R~
(M.S. Reddy)
Secretary to Gov!. of India
Ministry of Water Resources
and
President
Indian Water Resources Society

CONTENTS

Page No.
Foreword
1.0 Introduction
1.1 Water Resources of the World and India 2

1.2 Concept of sustainability in Water Resources Development 4

1.3 Concept of basin development 4

2.0 Need for Inter basin Transfers 6

2.1.1 The futuristic demand for Irrigation 6

2.1.2 The Hydropower demand vis-a-vis Himalayan storages 8

2.1.3 Metropolitan Water Supply 8

2.2 Options available for development 8

2.3 Interstate consideration in regard to water transfer 9

2.3.1 Constitutional provisions 9

2.3.2 Case law relevant to water transfers 10

3.0 Inter basin Transfer Proposals in India and abroad 13

4.0 Planning for inter basin transfers (National Water Grid) 14

4.1 Garland Canal by Captain Dastur 14

4.2 National Water Grid by Dr.K.L. Rao 14

4.3 Other Proposals 15

4.4 The National Perspective 17

4.4.1 Himalayan Rivers Component 17

4.4.2 Peninsular River Component 18

Page No.
0
4.4.3 Discussion on the National Perspective and

setting up of National Water Development Agency
19
4.5 National Water Development Agency 20
4.5.1 EstabHshment and Objective 20
4.5.2 Present Programme of work the Agency and work done so far 20
4.5.3 Methodology adopted by the Agency to work out

surpluses and deficits. 21

4.5.4 Assessed water balance in some river basins 23

4.5.5 Link proposals framed by the Agency 23

4.5.6 Total funds and time requirements 24

5.0 Issues involved in Inter basin transfers 25

5.1 General 25

5.1.1 Peninsular Component 25

5.1.2 Himalayan Component 25

5.2 Links involving two or three States 26

5.3 Apprehensions of the State Govts 26

5.4 The draft National Policy for allocation of waters of an

inter state river basin amongst States 27

6.0 Points for debate 27

Inter Basin Transfer of Water for

(
National Developlnent
II
Problems and Prospects
1.0 INTRODUCTION
a
-:=;- ' ution of India's water resources is highly uneven. As much as 32% of the
.: : _- :-;: s .... a·er resources flows down the Brahmaputra and Barak rivers. Another 28% flows
:- -:: _;- _ e Ganga. Floods are a recurring feature of these rivers. At the same time
r ; 9 areas in Rajasthan, Gujarat, Andhra Pradesh, Karnataka, Tamil Nadu face recurring
: - :~ gh s. Large scale migration of people from area of water shortage is a serious concern
:" uu' country.Creation of storages and Interbasin transfer of waters from surplus to water
:: - : -: 's;,JiJns Acould be one option to over come this anamoly.
The basic philosophy of interbasin transfers presumes the need to correct the
- :t:Jral imbalance leading to largely inequitable distribution of water resources. This
:: -osophy can be questioned. One can argue that every person, community or state
'.) uld have to live within the natural environments which could be more hostile than those
"aced by others, and equity of these need not be imposed. If this view is accepted, interbasin
:ransfers wouJ'd be justified purely as economic or commercial activities, competing with
o er economic and extra economic uses of the water. It can be argued that the river
's a 'property' of the group of co-basin states, and none else can share these resources
save at the will of, and on conditions laid down by, the co-basin states. Such a view can
perhaps be justified by the international conventions on water, which do not expressly
provide for any consideration of the needs of the non co-basin nations.
On the other hand, this view can be strongly contested.. Firstly, there is hardly
any parallel between sovereign nations sharing a common river, and the states of nation
sharing a river. While the nations are likely to be working only towards their welfare, and
are likely to be immune to the welfare of other nations in general, the states of a nation
have a positive interest in development of the other states, even if this be not as strong
as that of their own development. In the particular case of India, where the structure is
not stricNy federal, and where the union has multifarious responsibilities related to water,
environment, economic development etc. the national cons'ideration of meeting the essential
requirements of the non co-basin states appear to be important enough . Interbasin transfer
of water in India therefore appears to be more than a simple economic activity; it has
a considerable raison-de-etre as an integrating factor necessary for discharging the national
responsibilities towards its states and its citizens. This view is further strengthened by
the recent Supreme Court judgements in India, where the right of access to clean water
, has been linked ~ith the fundamental right to life. Thus, interbasin transfers to non co
basin states, for providing access to clean water seem to have even a stronger justification.
Rivers in India are closely interwoven with the cultural life of our people. Many ·
religious centres are located along the rivers. Religious rites are conducted along the river
bank and the rivers are worshipped. Rivers like Ganga, Godavari, Cauvery, Periyar are
.. sac.red to the Hindus. People from Northern part of India make pilgrimage to the rivers
: 1

in the South and vice versa. Token quantity of water is carried back by the pilgrims to
be mingled with waters of other rivers. Token inter-basin transfers of water are therefore
a part of our national cultural heritage. The concept of Ganga-Cauvery link has fired the
imagination of many Indians due to a large extent by its religious connections.
Interstate projects and interbasin links would physically make the states interdepen
dent. This will foster day to day cooperation leading to a feeling of oneness. Thus interbasin
transfers would improve the national solidarity.
1.1 Water Resources of the · World and India
The annual renewable fresh water supply in the world is about 47000 cubic
km . Corresponding figure for India is 1869 cubic Km. which is about 4% of the world's
supply. The per capita annual availability of water in India which is about 2200 cubic meters
is much lower than the world average, of about 8500 cubic meters. This compares
with 2420 cubic meters per year for China, 9900 cubic meters per year for USA,
19500 cubic meters per year for the former USSR.
Principal consumptive use of water has traditionally been for irrigation . Globally 3240
cubic km of fresh water are withdrawn and used annually. Of this 69 percent is used
for agriculture, 23 percent for industry and 8 percent for domestic use. Water use varies
considerably around the world. India uses 83 percent of its water for agriculture. But in
most of Europe and North America domestic requirement of water exceeds agricultural
needs. Mounting population and improved standards of living are pushing up demand for
food and fibre . The process of urbanisation which is likely to see over a half of the world's
population concentrated in urban settlements, would in turn demand greater water supplies
for domestic and industrial use.
Out of the total water resources potential of the country ab out 690 cubic Km
of surface water and 450 cubic km of ground water per year is available for use through
conventional structures. With this it will be possible to irrigate 113 M ha of gross area
each year (this figure has now been revised to 140 m.ha.) Irrigation potential created in
the country at present is 85.0 M.Ha, including 31.1 M.Ha from Major and Medium projects.
The present utilisation of water in the country is about 550 cubic km (including 460 cubic
km for irrigaHon) which is likely to go up,to about 1050 Gubic km (700 cubic km from surface
and 350 cubic km from ground waters) by the year 2025 AD. This includes 52 cubic Km.
for domestic use, 770 cubic Km. for irrigation,71 cubic Km . for energy, 120 cubic Km. for
industrial use and 37 cubic Km . for other uses. Thus almost the entire utilisable water
resources of the country would be required to be put to use by the year 2025 AD.
A look at the distribution of water resources potential in the country (Table 1) shows
that the per capita annual availability of water in Brahmaputra is as high as 18417 cubic
meters. It is as low as 380 cubic meters in some of the east flowing rivers of Tamil Nadu.
Any situation less than 1000 cubic meters per capita considered by international agencies
as scarcity condition and remedial measures as possible, planned. .Thus scarcity conditions
already exist in so~e parts of the country which needs to be remedied. Brahamputra basin
: 2 :

".
TABLE 1 : Water Resources Potential of River Basins of India
Average Annual Availability Utilisable Ground
Surface Water Water
SI. River Basin Water Resources Per Capita Potential
No. Potential
(km3) (m3) (km3) (km3)
1.
2.
3.
4.
5.
6.
7.
8.UJ II
9.
10.
11.
12.
13.
14.
15.
16.
17.
18.
19.
20.
Indus
Ganga-Brahmaputra-Meghna
(a) Ganga
(b) Brahmaputra
(c) Barak
Godavari
Krishna
Subernarekha
Cauvery
Brahmani-Baitarani
Mahanadi
Pennar
Mahi
Sabarmati
Narmada
Tapi
West Flowing rivers from
Tapi to Tadri
West Flowing rivers from
Tadri to Kanyakumari
East Flowing rivers between
Mahanadi &Pennar
East Flowing rivers between
Pennar &Kanyakumari
West Flowing rivers of Kutch
&Saurashtra including Luni
Area of inland drainage in
Rajasthan desert
Minor rivers draining into
Myanmar (Burma) &Bangladesh
Total
73.3
1110.6
525.0
537.2
48.4
110.5
78.1
12.4
21.4
28.5
66.9
6.3
11.0
3.8
45.6
14.9
87.4
113.5
22.5
16.5
15.1
negl.
31.0
1869.3
1757
2833
1473
18417
7646
2026
1312
1392
666
2696
2546
648
1057
421
2855
1091
3194
3539
919
383
631
14616
2214
46.0
274.0
250.0
24.0
76.3
58.0
6.8
19.0
18.3
50.0
6.9
3.1
1.9
34.5
14.5
11.9
24.3
13.1
16.7
15.0
690.3
25.5
201.4
171.7
27.9
1.8
46.8
26.6
2.2
13.6
5.9
21 .3
5.0
7.9
11.9
8.2
9.5
8.8
22.8
20.9
13.9
452.2
Present
diversions
Surface Ground
40
38.0
47.0
18.0
17.0
5.0
2.5
1.8
8.0
17.34
48.64
0.78
6.87
6.50
0.13
5.71
0.31
1.07
1.63
2.03
1.96
II
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inaian H·mer ResOllrces Suciety
with 5.9 percent of geographical areas and 3.2 percent of population of the country has ·
29 percent of the annual water resources. Per capita annual availability for rest of the
country works out to only 1500 cubic meter. It is therefore imperative that we link the
Brahmaputra and other rivers with a national grid to meet the shortages in the various
parts of the country.
1.2 Concept of sustainability in Water Resources Development
Planners and engineers who design, · construct and operate major development
projects are increasingly becoming aware of soci-al and environmental factors . Although
Water resource development projects have substantially contributed to the improvement of
quality of life of people, all developmental activities have environmental, economic and
social consequences - some beneficial and others adverse. Water resource development
that meets the needs of the present generation without compromising the ability of future
generation to meet their own needs will alone be considered as a sustainable development.
This will imply:
a) development is managed in such a way as to ensure that resources are
conserved and/or restored and that beneficial environmental effects are
maximised while the adverse effects are ameliorated to the extent possible.
b) efficiency in the use of water and economics is the key consideration in
selection of the strategy
c) option for future development are not foreclosed.
1.3 Concept of basin development
A river basin is generally recognised as a basic unit for water resource planning. A basin
may be considered as the area covered by a system of surface and sub surface w3ter flowing
intq a common terminus. States wtlose geographical area form part of the basin area are co-basin
states. The National Water Policy adopted by the Govt of India states as under;
"Resources planning in the case of water has to be done 'for a hydrological unit such as
a drainage basin as a whole, or a sub basin. All individual development projects and proposals
should be formulated by the states and considered within the frame work of such an overall plan
for a basin or sub basin, so that the best possible combinations of options can be made"
The concept of basin as a unit of planning recognises the basic geographic fact that a basin
is an entity in itself and that any water related action anywhere in the basin would have a more
or less direct consequence elsewhere. Any upstream water use wU,1of course directly affect the
downstream regime, both quantitative and qualitative. Any downstream action may require co
ordination with likely upstream action or inaction. Similarly, development on one portion of the
network may limit development in any other portion of the network in parallel, in order not to affect
the common downstream portion.
Thus, the 'basin as a unit' is perhaps but a small manifeslation of the 'one earth' concept
of the environmentalist. This similarity is more than conceptual. Although the land phase (the
: 4:

INTERBASIN TRANSFERS OF WATER FOR NATIONAL DEVELOPMENT PROBLEM & PROSPECTS WRD -1996

surface and ground water phases) of the hydrological cycle is somewhat segregated basinwise,
two important phases namely the oceanic phase and the atmospheric phase of the global
hydrologic cycle are far more integrated. Thus while 'basin as a unit' is a very workable concept
in the present context of technology and water development, if the water development exceeds
a threshold or if technologies change, the concept would have to be expanded. For example, the
large developments in the land locked Aral sea area would require the integrated consideration
of the whole Aral sea basin and not those of individual rivers upto their outfalls. Going beyond,
if some basins of say the Mediterranean are so developed as to affect the environments and
ecology of the sea, the Mediterranean sea basin may have to be considered as one unit, even
though it is not land locked; since the integration through the oceanic link may become important.
Similarly extreme tinkering with the meteorologic phase of the cycle through large scale
evaporation, atmospheric pollution or weather modification would have transbasin effects. The
sufficient looking concept of the 'basin as a unit' may have to be modified, and even international
conventions may have to be reworked.
2.0 NEED FOR INTER BASIN TRANSFERS
Though river basin could be a basic unit for water resource planning, this may not lead
to the optimal utilisation of the surplus water resources in various regions of the country. There
are many basins in the country would be surplus in water resources even in the ultimate stage
of development< while other basins would already facing situation of water shortages. For
." meeting the shortages in deficit regions, long distance interbasin transfers of water may be
necessary. This will lead to equitable distribution and optimum utilisation of our water resources.
Long distance transfers of water are characterised by
a) the large amount of water involved
b) long distance involved
c) higher costs involved
d) their likely impact on environmental aspects which will need to b~ considered.
The need or otherwise of Inter basin transfers will depend on the futuristic projections for
the demand for irrigation, population, Metro water supply etc.
2.1.1 The futuristic demand for Irri'gation
By present estimate the 'ultimate' irrigation potential of .the country is being stated as 113
MIllion hectares from the conventional source of major and medium projects, surface minor
projects and minor ground water source including State and private ground water development.
This estimate of the 'ultimate' is of course liable to change. The ground water component of the
ultimate potential has been recenHy reassessed from around 40 million hectares to about 64.0
Million hectares mainly due to the additional recharge likely to be available to the ground water
on account of the additional irrigation. There may be some increase in surface minor irrigation
potential. Thus the ultimate potential through conventional source is likel'y to be hiked upto around
140 Million Ha. If one assumes a low growth of population, a low growth of demand, coupled with
very good irrigation management leading to very productive irrigated agriculture, this irrigation
potential when achieved may be sufficient. However, this may become substantial'ly short of the
needs if one considers a reasonably high growth of population and demand.
: 6:

The United Nations has projected World Population in "World Population Prospects - The
1992 Revision" upto 2025 AD. This has been further extrapolated to 2050 AD. in the publication
"Sustaining Water - - An Update (1994)". This indicates India's 2050 AD. population as 1346
Million (Low projection), 1640 Million (Medium projection) and 1980 Mililion (High projection).
Possibly this projection of 1980 Million is on the higher side. However, long term planning should
take into account such a scenario also as the country can not afford to have shortages in such
basic needs. However, excesses, if any, can always be exported to the country's benefit. .
In India at present the food grains availability is 525 gms per capita per day. The food grain
availability in China and USA is 412 Million tonnes and 260 Million tonnes(in 1993) for respective
population of 1155 Million and 250 Million. Thus the per capita per day avai,lability of China is 980
gms and that of USA is 2850 gms.
Thus, alongwith to three projection for population, we may also consider three projection
for the future per capita daily requirement of food grains, viz. low requirement of 600 gms per
capita per day, a medium requirement of 800 gms per capita per day and a high requirement of
1000 gms per capita per day. The three projection for population and three projection for food
requirement would give nine possible projections for country's total food requirement. Assuming
that all projection have equal probability, the food requirement with 33% probability of falling short
of our need would be about 550 million tonnes in 2050 AD. Food requirement with 50% probability
of falling short of requirement, would be about 480 million tonnes. Our planning for the future
should therefore be based on the requirement of 550 million tonnes and if the actual requir.ement
is less, the surplus can be considered for exports.
Traditionally a major share of India's export was from agricultural produce like tea, cotton,
jute, cashew, coir etc. Large requirement of agricultural produce for exports, calls for very good
quality of additional irrigation.
The population projection and food requirement of the country was also discussed during
the Third National Water Resources Council meeting held on 6th Feb.1996.lt was indicated that
the population of India is expected to stabilise at 1500 to 1800 million by 2050 AD and that would
require about 450 million tonnes of food grain annually at the present level of consumption. To
meet the demands of the country reasonably well we will have to plan for a production of not less
than 500 m ill~on tonnes of food grain by 2050 AD. The present productivity of irrigated land is
about 2.5 tonnes/ha. and 'less than 0.5 tonnes/ha. for rain fed lands. Assum.ing that these !evels
can go up to 3.5 tonnes/ha. and 1.0 tonne/ha. respectively by 2050 AD. It is imperative that we
create an irrigation potential of at least 130 million ha. for food crop alone and 160 million ha. for
. all crops to be able to meet the demands of the country by 2050 AD.
The agricultural yields that are likely to be achieved by 2050 AD are of course a subject
of debate in themselves. Considering that management improvements would be slow, and that
irrigated yields, particularly in the North West, a technological plateau may be reached, the
projected figures appear reasonable. However one should also keep the fast developments in
biotechnology in view. If there is a breakthrough to make the result of this technology available
to the Indian farmers, yield could be substantially larger. But the question remains: should wishful
thinking of such possibilities be ingrained in our strategies?
: 7:

The planning for long term future would have to include nonconventional sources like
interbasin transfers.
2.1.2 The Hydro power demand vis a vis Himalayan storages.
The Ministry of Power has projected the peak demand of energy in 1999-2000 as 1,12,319
MW (594 billion units) growing at the rate of over 9% annually. This would mean that the energy
demand by the year 2010 would be of the order of 2.65 lakh MW and assuming the same rate
of growth of 9% (i.e. doubling in eight years), the projected demand by the year 2050 would be
8.3 Million MW and energy of about 44000 billion units. Since India has limited petroleum
resources all possible means of power generation will need to be tapped concurrently to meet vast
growing demand. Bulk of this power has to come from mal based thermal power plants and the
peaking power has to come from hydel sources. At 40% requirement of power from hydel sources
for peaking, peaking requirement will be around 3.3 Million MW which is by far higher than the
84000MW of estimated'hydel power potential of the country. In such a scenario the large potential
available in Nepal and Bhutan would become attractive and perhaps inescapable from the point
of view of power alone. Once these large storages in the Himalayas become a reality, the
Himalayan links would become feasible. Studies including investigations of interlinking proposals
have, therefore, to be ready for implementation by that time.
2.1.3 Metropolitan Water Supply
Most of the mega cities and urban centres are already water short, inspite of priority being
given to urban and Industrial water supply requirements, Already long distance water transfer
have come into existing for metropolitan water supply. Delhi gets partial supplies from Bhimgoda
on Ganga (200 kms) and Bhakra on Sutlej(300 km). Bombay gets water from Vaitarana, Bhatsa
etc (90-120 km). Madras water supply is being augmented from Srisailam on Krishna (500 km).
Farakka barrage and feeder canal carries water supplies to Calcutta. The planning for water
supply in meeting projected requirement atleast upto 2050 AD needs to be done now and
availability matched with progressive increased requirements~art of the requirement can be met
by recycling the waste water. Balance requirement of water wllt-have to be met through long
distance transfers.
2.2 Options available for development
As discussed earlier a conservative estimate for food grain requirement by the year 2050
would be of the order of 550 million tonnes. Possible option to meet the future irrigation and food
needs would be as follows:
Demand management Sypply management
1. Irrigation 1. Artificial recharge
1)
2)
3)
4)
5)
Drip
Sprinkler
Change in cropping pattern
Evaporation control
Reduction in canal losses
a)
b)
Recharge through irrigation
Designed artificial recharge
: 8:

Demand management Sypply management
2. Industries 2. Inter basin transfers
1. Recycling
2. Improved technology 3. Desalination of sea water
3. Domestic supply 4. Rain fall by cloud seeding.
Efficient treatment and
its use for irrigation,
horticulture, forestry
etc.
In regard to artificial,recharge on a large scale through design, the technology is not well
established as yet. Also the areas of ground water shortage are also likely to be short of surface
water for recharge. Considering this, the role of artificial recharge though,likely to be very
significant locally, may not be very large for the country as a whole. On the other hand,the inter
basin transfers based on proven technology have a potential of additional irrigation of around 25
to 35 million hectares including the conjunctive use of the recharge caused in the process of
transferring and using the surface water. Even here, some of the water transfer links may not come
up at all but still the links as can come up may be important in bridging the gap.
The desalination of sea water has not so far been done on any large scale due
to its prohibitive cost. Also its use may be limited to near the coastal areas. Cloud seeding
has been attempted only on experimental basis and is limited to small areas. It can not
be resorted every where. The economics of cloud seeding and its effect on rainfall pattern
on adjoining areas is yet to be studied.
2.3 Interstate consideration in regard to water transfers
The need for national policy guidelines for water aiJocation of inter-state rivers amongst
the states has been engaging the attention of the Union Ministry of Water Resources for
quite some time. Draft National Policy Guidelines on this issue were discussed in the
Second meeting of National Water Board (1994) and National Water Resources Council
meeting (Feb. 1996).
An important feature of these draft guidelines is that the Centre is proposed to
be a party to look after the national interests like environmental concerns, pressing need
of non-co-basin states, needs dictated by international relations and obligation needs of
National Water Ways for navigation. To avoid recurring confrontation between states on
sharing waters of inter-state rivers, it limits the rights of states in possessing waters till the
waters are utilised. Thus these guidelines will make it· easier to plan water transfers.
2.3.1 Constitutional provisions
Under the Constitution of India, Article 262, deals with the adjudication of disputes
relating to waters of interstate river or river valleys and Entry 17 of List " and Entry 56
: 9:

of List I of Seventh Schedule deals with items that fall within the purview of the state legislation
and the parliament respectively. These are reproduced below:
Article 262:
Adjudication of disputes relating to waters of inter-State rivers or river valleys
1) Parliament may by law provide for the adjudication of any dispute or complaint
with respect to the use, distribution or control of the waters of, or in, any
inter-State river or river valley.
2) Notwithstanding anything in this Constitution , Parliament may by law provide
that neither the Supreme Court nor any other Court shall exercise jurisdiction
in respect of any such dispute or complaint as is referred to in clause (1).
Entry 17 - List II:
"Water, that is to say, water supplies, irrigation and canals,drainage and embankments,
water storage and water power, subject to the provisions of entry 56 of List '''
Entry 56 - List I:
"Regulation and development of inter-State rivers and river valleys to the extent
to which such regulation and development under the control of the Union is declared by
Parliament by law to be expedient in the Public interest."
In the international context, the existing conventions in regard to water recognise water
some what as a common property of the Nations which are within the basin. However,
any obligation of this group of Nations in regard to water development to any non-cobasin
Nation or to a larger community of Nations is not mentioned directly.
The position in regard to the transfer of waters of interstate rivers to non co-basin
states has perhaps not been sufficiently clarified through case law etc. The existing case
law on the subject is discussed below:
2.3.2 Case law relevant to water transfers
The issue of inter-basin transfer came up before Krishna Water Disputes Tribunal
and Narmada Water Disputes Tribunal. The stands taken by these Tribunals are briefly
described below:
.The Krishna Water Disputes Tribunal considered the following issue:
"Should diversion or further diversion of the waters out side the Krishna drainage
basin be protected and/or permitted? If so, to what extent and with what safeguards?"
The Tribunal came to conclusion that diversion of water of an inter-State river outside
the river basin is legal. It found that all the areas outside the Krishna basin to which the
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Krishna waters were diverted or proposed to be diverted were situated within the territories
of riparian States. The tribunal however, expressely stated that it was not expressing any
opi~ion on the question whether the Krishna waters can be lawfully diverted to areas situated
in the territories of non-riparian States.
Thus this view of the KWDT does not deal with the interbasin transfer of water
to the non cobasin states.
The Narmada Water Disputes Tribunal considered the claims of Rajasthan, a non- I
riparian State for a share of waters of inter-State river Narmada. It held that Rajasthan being
a non-riparian State is not entitled to any portion of the waters of the Narmada basin. Later
on, however, with the consent of the riparian States, Rajasthan was admitted to the dispute
and water has been awarded to it. In this connection, the foillowing observations of the Tribunal
are reproduced. .
"It may perhaps, be open to Parliament to enact a law in exercise of its authority
under item 56 of List I of the Seventh Schedule not only apportioning the waters of the
Narmada river between the riparian States of Gujarat, Madhya Pradesh and Maharasahtra
but also give a share to Rajasthan. The Constitution may also perhaps be amended so
as to expand the scope of Entry 56 of List I so as to include apportionment, control and
use of waters of all inter-State rivers which are declared by Parliament by law to be expedient
in public interest. If the Constitution is so amended and the appropriate law is enacted
by Parliament, the rights and interests of the riparian States of Narmada under item 17
of List " would be superceded and the law enacted by Parliament would prevail".
Another observation of the KWDT lays down an important principle in regard to
interstate water transfer. In the context of the existing proposals of the State to get additional
water, from other basins, to the Krishna basin for use by those states, the Tribunal observed
"In the event of the augmentation of the waters of the river Krishna by the diversion
of the waters of any other river, no state shall be debarred from claiming before any authority
or Tribunal even before the 31 st May 2000 that it is entitled to a greater share in the waters
of the river Krishna on account of such augmentation nor shall any State be debarred
from disputing such claim"
The existence of Entry 56, the responsibilities of the Union in regard to evironment,
economic planning, external relations and the unique two tiered (or three tiered) fixed system
of sharing of responsibilities in India, together indicate that the implementation of water transfer
to non cobasin states within India could be considered to be in the National interest and
that it may be possible for the Parliament to legislate in this regard under entry 56.
The other alternative could be through an agreement amongst the States. However,
this may require an agreement not only between the states through which the link passes
but also all co-basin states of all basins involved in the transfer may have to agree.
It may also be beneficial to develop a national consensus in this regard through
adoption of a National policy. In fact, the National Water Policy already adopted by the
National Water Resources Council states that;
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Colloquium Organised at Bhubaneswar in December - 1992 On Peninsular Rivers
Development Studies
Existing Srisailam Dam Forming Part of Proposed Srisailam Proddatur Link

"Water should be made available to water short areas by transfer from other areas
including transfers from one river basin to another, based on a National Perspective, after
taking into account the requirements of the areas/basins".
3.0 INTER BASIN TRANSFER PROPOSALS IN INDIA AND ABROAD
Long distance inter basin transfer of -water is not a new concept and has been
in practice in India for over five centuries. The Western Yamuna Canal and the Agra Canal
buift in Mughal times are examples. Water was carried from the Himalayas to the distant
parts of Punjab, U.P. and Rajasthan. The Kurnool Cuddappah Canal (1860-1870) and Periyar
Vaigai (1896) are other good examples of inter basin water transfers executed in India in
the 19th Century.
In the present century Rajasthan Canal Project diverts waters from the Himalayas
to the deserts of Rajasthan. The Project comprises of a huge multi purpose project
constructed across the Beas river at Pong, a barrage at Harike and a grand canal system.
Other important inter basin water transfer schemes in the country are the Parambikulam
Aliyar-Project, Telugu Ganga,Sardar Sarovar etc.
In United States, the California's State Water Project, first phase of which was
completed in 1973, provides for the diversion of 4 cubic km of flow from better watered
northern California to the drier central and southern parts of the state. The conveyance
system comprises of 715 Km California Aqueduct, a complex system of lined and unlined
canals, pumping stations, syphons and tunnels. The lift involved is nearly 1000 m.
The Texas Water Plan envisages redistribution of water in Texas and New Mexico
to meet the needs of the year 2020.
Similarly the waters of the Colarado river (an international river between USA and
Mexi60) are being supplied outside the basin to the Imperial valley;n the California.
Major existing and under construction inter basin transfers in Canada include Kemano,
Churchill DiverSion, Weiland Canal, James Bay, Churchill Falls, Bay d'Espoir etc. Proposed
inter basin transfers in Canada include Ogoki, Long Lake( for transfer within Canada) and
North American Water and Power Alliance (NAWAPA), Grand Canal Concept, Canadian
Water, Magnum Plan, Central North American Water project (CelJAWP), Smith Plan etc.
for transfer from Canada to USA.
In Mexico, for the Mexico city water supply, transfer of ground waters from the Lerma
basin was completed in 1958. The Water Plan for the North Western Region (PLHINO)
con.ceived a set of inter basin transfers within the Noroeste region.
Mahaveli-Ganga Project of Srilanka includes several inter basin transfer links.
Inter basin transfer projects have also been planned and implemented in China and
former USSR. A notable scheme executed in the USSR is the Irtysh Karganda scheme
in the central Kazakhistan. The link canal ·is about 450 km long with a maximum capacity
of 75 cumecs. Lift involved is 14 to 22 m. There is another plan to transfer 90000 mcm
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Indian Water,Resources Society
from the north flowing river to the area in south. Other proposals include partial redistribution
of water resources of northern rivers and lakes of European part to the Caspian sea basin
involving 2 M.Ha.m of water.
The Lingua Canal was completed in China in 214 BC and the Grand Canal was
completed in 605 AD. Recently completed projects in China include Biliuha-Dalian inter basin
wat~r ~upply system, Trans basin transfer of Luhana river to Tiajian and Tengshan, Inter
basin diversion of Guanglong province and Inter basin diversions in Fujian province. Diversion
of Quiantang river water, diversion of Yellow river surpluses and South to North transfer
projects with the West route, Middle route and East route are other proposed projects.
4.0 PLANNING FOR INTER BASIN TRANSFERS (NATIONAL WATER GRID)
Suggestions for a National water grid for transferring surplus water available
in some regions to water-deficit areas have been made from time to time. Two proposals
put forth earlier in the seventies which attracted considerable attention are described below:
4.1 Garland Canal by Captain Dastur
Captain Dastur, earlier put forward his proposal for Garland Canal(Fig.1) which mainly
consists of two canals, viz, (i)A 4200 km long, 300 m wide Himalayan Canal at a constant
bed level between 335 m. and 457 m. above Mean Sea Level aligned along the southern
slopes of the Himalayas running from the Ravi in the west to the Brahmaputra and beyond.
It will be fed by the Himalayan river waters stored in 50 integrated lakes to be created
by cutting the hill slopes of the Himalayas to the same level as the bed of the canal, and
another 40 lakes beyond Brahmaputra. The proposal envisaged a storage capacity of
24.7 M.Ham to control and distribute 61.7 M.Ham of water. (ii) 9300 km long 300 m wide
Central and Southern Garland Canal at a constant elevation of between 244 m. and 305
m above the Mean Sea Level. This Garland Canal was proposed to have about 200
integrated lakes having a storage capacity of 49.7 M.Ham to control and clistribute 86.4
M.Ham. The Himalayan and Garland canals were proposed to be inter-connected at two
points (Delhi and Patna) by 5 no. of 3.7 m.dia pipelines for transfer of water. Captain Dastur
estimated that all the surplus waters in the country will be utilised to irrigate 219 M.Ha.
About 16.8 Million volunteers were expected to complete the work in 3 to 4 years. The
cost estimated by Captain Dastur (around 1974) was Rs. 24095 crores.
The proposal was examined by two committees of Experts Comprising experts from
Central Water Commission, State Governments and Professors from liT and Roorkee who
were of the opinion that the proposal was technically unsound and economically prohibitive.
Preliminary studies carried out by the Central Water Commission (around 1979) indicated
that the cost of the Dastur proposal was about Rs.12 million crores. The scheme was,
therefore, given up.
4.2 National Water Grid by Dr, K.L. Rao
lA note on the Nationall Water Grid was earlier prepared by the then Central Water
and Power Commission (around 1972) three possible alignments for the Ganga-Cauvery link
alongwith other links were brought out. Further studies were made by Dr. K.L. Rao who
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-
advocated one of the alignments for the Ganga- Cauvery link along with a few other
links including the Brahmaputra and Ganga Link (Fig.3). The 2640 Km long Ganga-Cauvery
rlllK essentia))y envIsaged tne w'ltndrawa ot 1680 cumecs l60000 cusecs) ot t'ne t)ood t)ows
of the Ganga near Patna for about 150 days in a year and pumping about 1400 cumecs
(50,000 cusecs) of this water over a head of 549 metres (1800 feet) for transfer to the
Peninsular region and utilising the remaining 280 cumecs (10,000 cusecs) in .the Ganga
basin itself. The proposal envisaged utilisation of 2.59 million hectare meters of Ganga
waters to bring under irrigation an additional area of 4 M. Ha. Dr. Rao had also proposed
a few additional links like (a) Brahmaputra-Ganga link to transfer 1800 to 3000 cumecs with
a lift of 12 to 15 m. (b) Link transferring 300 cumecs of Mahanadi waters southwards (c)
Canal from Narmada to Gujarat and Western Rajasthan with a lift of 275 m and (d) links
from rivers of the western ghats towards east. Dr. Rao had estimated his proposals to
cost about Rs.12,500 crores. Very roughly at 1995 prices the Ganga Couvery link alone
would amount to about RS.70000 crores (capital cost). The annual costs including cost of
power would be around RS.30000 per hectare. As further seen, the present NWDA proposals
for inter linking river between Ganga and Cauvery at present prices would cost only around
RS.15000 per hectare annual'ly. The proposals were examined by the Central Water
Commission and found to be grossly under-estimated. It was also observed that the scheme
would require large blocks of power (5 to 7 million kw.) for lifting water. It will also have
no flood control benefits. Therefore, the proposal was not pursued as such.
4.3 Other Proposals
1. Mr. R.N. Malik, Executive Engineer, Technology Mission, Gurgaon suggested
the following links
1) Ganga with Yamuna

2) Yamuna with Ghaggar

3) Ravi with Beas

4) Sutlej with Ghaggar

These links were envisaged to benefit three districts of Haryana namely
Rohtak, Bhiwani and Gurgaon in addition to Thar desert. According to him
no other link is possible in the country.
2. Dr. Subir Kar Professor I.I.T. Bombay proposed to solve the problem of floods
and drought by creating lakes of the size of 'Chilka' in every State at Village
paragana, district and State levels and inter connecting them with huge
pipelines. He expected the arrangement to generate power to sustain the
pumping involved in the system and also help in recharging the ground water
reservoir.
3. Major S.Dhawan Consulting Engineer & Contractors Delhi proposed the
construction of a 50 metre high 3600 Km long bund from Dhateswari river
in Mizo hills in the east to the river Ravi in the west along the Himalayan
foot hills to form a canal of 1448 metre width; and another 50 m high bund
to form a 9800 Km long canal, 247 m wide around Deccan Plateau. He
also proposed a high level 400 Km long and 500 m wide canal along the
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ridge between Indus and Ganga and reservoirs on the main river system.
The above reservoirs will store and distribute about 11,65,800 M cu.m. of
combined waters of all our river systems as available at the foot hills. The
proposals were estimated to cost Rs. 82,000 crores approximately according
to him.
4. The proposal by Mis Himmat Kumar Mair & Associates, Constructing Engineer,
.Bombay envisaged 5000 km coastal canal of average dimension of 50 m x
10m deep connecting all estuaries, through a contour canal.
The total water availability from this grand canal was expected to be of the
order of 2.5 million cubic meters at an estimated cost of Rs.6000 crores.
5. Dr. Haridas Shetty of Bombay envisages laying of pipelines along the Railway
track from Northern part of the country to the tip of the country connecting
various reservoirs. By this he felt that the floods and droughts can be
overcome. These pipes were proposed to be placed on tripods throughout
their length.
6. Proposal from Mr.lJirmal Vaswani, President, The Gandhidham Chamber of
Commerce and industry, Gandhidham, Kutch was to lay a pipeline for transfer
of water simultaneously alongwith the P.O.L. Pipeline from Kandla to Bhatinda
in the reverse direction. The pipeline is proposed from river Yamuna near
Karnal or from the canal network at Ganganagar in Rajas·than for transfer of
water to Kutch and Kandla region and other scarcity areas in Gujarat and
Rajasthan.
7. Proposal from Mis Third Point, Contractors Building, Parsi Lane, Sardar Bazar,
Fateh Ganj, Baroda was to lay a network of Pipelines (7-8 metre Diameter)
of materials like steel, fibre glass, polyurithene etc. for carrying water from
sources of surplus fresh water supply during peak months to innumerable
catchment areas, reservoirs, various major, medium and small rivers and their
tributaries, existing canal systems to finally make fresh water a controllable
factor in India's economy. The proposal envisaged construction of a iarge
number of catchment area reservoirs as a precondition. The entire system
of these pipelines was proposed to be computer controlled with various stations
and sub-stations monitoring flow and fulfilling requirements precisely.
8. The Proposal from Shri G. Madhusudhanan, Madras "National Pipeline Water
Project" envisaged transfer of water from perennial rivers like Brahmaputra,
Ganga, Godavari, Krishna etc. to the drought affected areas by pumping
through a network of pipelines and construction of distribution tanks of size
200 m x 150 m x10 m at every 50 Kms.
9. In his article, Mr. M.A. Tiru Narayan, Chief Engineer (Retd), Delhi Water Supply,
proposed to transfer water from Godavari to Krishna, Pennar and Cauvery
in stages through pipelines by pumping. He envisaged the power required
for pumping to be available from Ramagundam Project.
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10. Mr. Balai Krishna Kar proposed to excavate the sand from Thar desert and
put it in the Gulf of Kutch and to dig a river along the western international
border of the country and dredging of existing rivers. He also proposed digging
a river from Sutlej to Narmada via Jaipur city and another to join Mahanadi
(Bilaspur) to Narmada (Jabalpur). He also suggested the excavation of lakes
and puting the excavated material in the Gulf of Kutch.
All these proposals are at best, 'very preliminary and conceptual. No .thinking
of engineering practicability seems to have gone into most of these and these
can hardly qualify as alternatives worth serious considerations.
4.4 The National Perspective
This continued interest shown by many people gave impetus to study inter basin
transfer proposals.
The then Ministry of Irrigation (now Water Resources) formulated a National
Perspective for Water Development in August 1980. The broad approach adopted in the
National Perspective is briefly indicated below :
i) EXisting uses have been kept undisturbed.
ii) Normally water development under the existing legal and constitutional frame
work is assumed to take place fully by the turn of the century.
iii) The development envisaged is within the frame work of all the existing
agreements between the states.
iv) While planning inter-basin and inter-state transfer of water, reasonable needs
of the basin states for the foreseable future have" been kept in view and
provided for.
v) Most efficient use of land and water in the existing irrigation and hydro power
station has been kept as a principal objective to be achieved.
The National Perspective Plan (Fig.4) comprises of two components, namely;
i) Himalayan Rivers Development; and

ii) Peninsular Rivers Development.

4.4.1 Himalayan Rivers Component
The Himalayan Rivers Component envisages construction of storages on the main
Ganga and the Brahmaputra rivers and their principal tributaries in India and Nepal 'so as
to conserve monsoon flows for flood control, hydro-power generation and irrigation. Inter
,linking canal systems will be provided to transfer surplus flows of the Kosi, Gandak and
Ghagra to the west. In addition, Brahmaputra-Ganga Link will be constructed for augmenting
dry weather flows of the Ganga. Surplus flows available on account of inter-linking of Ganga
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and Yamuna are proposed to be transferred to the drought areas of Haryana, Rajasthan
and Gujarat. The scheme will also enable large areas in South-Uttar Pradesh and South
Bihar to obtain irrigation benefits from the Ganga with a moderate lift of less than 30 m.
Further, al,1 lands in Terai area of Nepal would also get irrigation apart from generation of
about 30 million kw of hydro-power in Nepal and India. It will also provide flood moderation
in the Ganga Brahmaputra system. With this proposal, about 14.0 million ha.m. of additional
water would be available from these river systems for irrigating an estimated 22 million ha.
in the Ganga Brahmaputra basin, apart from Haryana, Punjab, Rajasthan and Gujarat. It
would also provide 1120 cumecs (40,000 cusecs) to Calcutta Port and would provide
navigation facilities across the country. The scheme will benefit not only parts of India but
also our neighbours - Nepal and Bangladesh. Planning and implementation of this scheme
will, have to include Nepal, Bhutan and Bangladesh as they also are part of the same
hydrological unit.
4.4.2 Peninsular River Component
Amongst the Peninsular rivers, the Mahanadi and Godavari have sizeable surpluses
after meeting the existing and projected needs of the State within these basins. It is, therefore,
proposed to provide terminal storages on Mahanadi and Godavari river to divert surplus
flows of Mahariadi to the Godavari system and to further transfer surplus from the Godavari
Systems to water short rivers namely, Krishna, Pennar and Cauvery. The link from Mahanadi
to Godavari will be along the east-coast and will not involve any lift. The link between
Godavari and Krishna will be partly by gravity and partly in the ultimate stage, by lifts of
the order of 120 M (maximum) . The transfer of waters would enable irrigation in drought
areas of Maharashtra, Karnataka, Andhra Pradesh and Tamil Nadu by successive exchange.
.. The second component of this proposal is to divert a part of the waters of the west
flowing rivers of Kerala to the east for irrigating the drought areas of Tamil Nadu, apart .
from bringing new areas under irrigation in Kerala.
The third component is to construct storages and to inter-link small rivers flowing
along the west-coast, north of Bombay and south of Tapi. This will enable partial release
of waters from Tapi and Narmada which will enable extension of irrigation to Saurashtra
and Kutch areas. It will also enable provision of extra water to meet the growing needs
of metropolitan area of Bombay as well as providing irrigation to the coastal areas in
Maharashtra.
The fourth component envisages inter-linking of the southern tributaries of the Yamuna
like the Ken and the Chambal in addition to construction of small storages on intermediate
tributaries and a dam on the Yamuna at Panchnad. This will enable irrigation in Ujjain
and Indore areas of Madhya Pradesh as well as Upper areas in Rajasthan.
The proposal of Peninsular River Development will enable additional use of about
8.4 million ha.m. of water to benefit the States of Orissa, Andhra Pradesh, Maharashtra,
Karnataka, Tamil Nadu, Madhya Pradesh etc. This will provide additional irrigation benefits
of over 13 miUion ha.
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Indian Water ReSOUi"Ci:'s Socier.,
The distinctive feature of the National Perspective is that the transfer of water is
essentially by gravity and only in small reaches by lifts not exceeding 120 m. The scheme
was primafacie found to be technically feasible and economically viable when compared
to the present cost of development of irrigation facilities. The technology required is already
known and tried in our own country and does not involve experimentation or research.
Initially priority was to be given to the development of storages and gravity links in
order to exploit maximum benefits of hydro power generation in initial stages and at the
same time extend irrigation benefits to large areas. This could be later on followed by lift
components .
4.4.3 ' Discussion on the National Perspective and setting up of National Water
Development Agency
An outline of the National Perspective was circulated to all the members of the
'. National Development Council in its meeting held in November,1980. Similarly, it was also
sent to all the State Chief Ministers and Members of Parliament for information.
Smt. Indira Gandhi, the then Prime Minister went through the scheme and considered
it as an exciting proposal with a vast potential. She further advised that work on the
studies may be taken up immediately with that part of the scheme which could be implemented
on our own (Peninsular Component). It was further indicated that there may be an advantage
in undertaking this as a Central Scheme so that problems relating to coordination ' of efforts
by the different states are minimised.
The National Perspective Proposals were discLissed with the Irri.gation Secretaries
and the Chief Engineers of concerned State Governments, the Central Water Commission,
the Central Electricity Authority and the Planning Commission, by the Secretary (Irrigation)
in June, 1980. The broad approach of harnessing the water resources in the overall national
inte'rest and the concrete initiative taken in this regard by the Centre was welcomed by
all.
Regarding the proposal for inter-linking of the Mahanadi, Godavari, Krishna, Pennar
and Cauvery some of the basin-states of the Mahanadi and the Godavari expressed
apprehension regarding availability of surplus waters in these two basins for being transferred
outside. It was, however, agreed, inter-alia, that there is need for creating storages on these
river systems so that the waters so harnessed could be used for beneficial purposes; and
that the Government of India, in cooperation with the State Governments may take up
immediately the work of surveys and investigations of all the storage sites identified so far,
as tentatively proposed in the National Perspective. Similarly, the other segments of the
Peninsular co'mponent, viz. inter-linking of the west flowing rivers north of Bombay and South
of Tapi , diversion of west-flowing rivers in Kerala, and inter-linking of Ken with the Chambal,
were discussed with the State Governments and it was agreed to take up requisite surveys
and investigations.
The proposals were further discussed in 5th Conference of the State Irrigation Ministers
held in November, 1980 and broadly agreed upon. The Central Govt. was asked to take
up necessary surveys and investigations. The matter was also discussed further in the
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Indian Weier Resources Society
6th Irrigation Ministers Conference held in September, 1981 when it urged up:Jr: all the States
to extend their full support in the task.
These developments led to the setting up of the National Water Development Agency.
4.5 National Water Development Agency
4.5.1 Establishment and Objective
The National Water Development Agency was"set up in 1982 by Government of India
resolution under the Ministry of Water Resources as an Autonomous Society to study the
feasibility of the National Perspective. The Agency is fully funded by Government of India.
Initially work of Peninsular Component of the National Perspective Plan was entrusted to
the Agency. The Himalayan Component was subsequently entrusted to the Agency during
1990-91. The objectives of 'the Society are as follows:
(a) To promote scientific development for optimum utilisation of water resources
in the country,
(b) To carry out detailed surveys and investigations of possible reservoir sites and
inter-connecting links in order to establish feasibility of the proposal of
Peninsular Rivers Development and Himalayan Rivers Development Compo
nents forming part of the National Perspective for Water Resources Devel
opment prepared by the then Ministry of Irrigation (now Ministry of Water
Resources) and Central Water Commission.
(c) To carry out detailed studies about the quantum of water in various Peninsular
River systems and Himalayan River systems which can be transferred to other
basins/States after meeting the reasonable needs of the basins/States in the
foreseeable future.
(d) To prepare feasibility report of the various components of the scheme relating
to Peninsular Rivers development and Himalayan Rivers development.
(e) To do all such other things the Society may consider necessary, incidental,
supplementary or conducive to the attainment of above objectives.
4.5.2 Present Programme of work of the Agency and work done so far
A total of 36 Water transfer links have been identified (17 under Peninsular
Component and 19 under Himalayan Component) for taking up detailed studies.
In the Peninsular Component the Agency has prepared prefe-asibility reports of all
the seventeen links. Feasibility reports of three links have also been completed.
Survey and investigations for preparation of feasibility reports of 6 links have been
taken up.
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Indian Water Resources 5 0 L .iC .- .
Prefeasibility report of five links in the Himalayan Component have been completed.
Survey and investigations for preparation of feasibility reports of the Manas -Sankosh
Tista-Ganga link and Sarda-Yamuna link have been taken up.
All the prefeasibility reports will be completed during the VIII Plan. Preparation of
the feasibility reports of the links will however continue during IX and X Plan.
The cost of studies considered originally by Public Investment Board in 1981 for
Peninsular Component was Rs. 107.04 crores which is now estimated to cost RS.181 crores
(inclusive of Himalayan Component). The actual expenditure upto 1994-95 was Rs. 32.84
crores only.
4.5.3 Methodology adopted by the Agency to work out water surpluses and deficits.
In order to assess the surplus or deficit of water in various basins/sub-basins
and thereby formulate the possible inter-basin water transfer link proposals, the sub
basinwise water balance studies are conducted first. In addition, the water balance studies
at certain diversion points on various rivers are also conducted in order to assess the
suitability of these pOints for the transfer of water through the link proposals. It is however
important that optimum water management practices in the deficit areas like sprinker, drip
etc are followed/adopted and only balance requirement needed be planned by inter basin
transfers.
Some important guidelines adopted for the studies are discussed below
(i) Assessment of surface water availability
The overall surface water availability in a basin/sub-basin is assessed ·both at 75%
and 50% dependabilities .
(ii) Estimation of water requirement in the foreseeable future[say by 2025 AD) :
The ultimate surface water requirement for various uses viz. irrigation, domestic,
industrial, hydro-power and salinity control in the sub-basin/basin is worked out as indicated
below.
(iii) Irrigation requirement :
The designed annual . irrigation and annual water utilisation for existing and on
going projects as planned by the States are considered without any change. The annual
irrigation for proposed identified projects is estimated considering intensities of irrigation
of 150%, 125% and 100% respectively for major, medium and minor projects.
The annual water utilisation for future projects is worked out by climatological
approach considering a model cropping pattern representing the entire basin/sub-basin and
using the potential evapo-transpiration values worked out by Modified Penman's method.
In case the annual irrigation from all the existing,· on-going and proposed projects
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as worked out above in a deficit basin/sub-basin is less than 30% of its maximum culturable
area, the same is being enhanced to 30% and the water requirements are estimated
accordingly.
Similarly, in case of a surplus basin/sub-basin, the annual irrigation is increased to
60% of the maximum culturable area so as to ensure provIsion for all the possible
reasonable in-basin demand prior to contemplating . any proposal for transfer of water to
the deficit areas.
(iv) Domestic water requirement
The human population as well as livestock as per the latest census is projected
to 2025 AD by adopting suitable annual compound growth rates. The water requirement
for rural and urban population is worked out taking the per capita daily needs of 70 litres
and 200 litres respectively. The per capita daily needs of livestock is considered as 50
litres.
(v) Industrial water requirement:
The water requirement of present or proposed industries, is collected from state
agencies. If no data is available, it is assumed that the total industrial water requirement
in the basin or sub-basin would be of the same order as the total domestic water requirement
for human population and livestock.
(vi) Hydro Power:
If the data on evaporation losses at the hydel projects are available, the same is
been considered. In case such data are not available, the same is worked out from
the water spread area of the reservoirs assuming suitable evaporation rates. In absence
of any information it is assumed to be 20% of utilisations.
(vii) Releases for Salinity Control and Environment and Ecoloy:
There is need for scientific study on the minimum flow required in the river for
controlling salinity intrusion into the basin and to maintain the alluvial morphology of the
stream etc. pending this 10% of the yield at 75% dependability is conside red towards
salinity control before diversion of any surpluses can be considered.
For environment and ecology, after meeting downstream requirements, a minimum
flow of 10% of the inflow at diversion structures should be maintained and with storages
this could be of the orders of 10% of the average lean season natural flow down stream
of the storage.
(viii) Regeperation:
The regeneration is considered to be available at 10% of the net u·tilisation for
irrigation from existi,ng, ongoing and proposed major and medium projects and at 80% from
the industrial and domestic requirement met from surface water resources.
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Indian ,Water Resources Society
4.5.4 Assessed water balance in some river basins:
The outcome of water balance studie.s of some of the impor . tant basins is briefly
indicated in figure~5. The basins like Mahanadi, Godavari, West flowing rivers of Kerala,
Karnataka between Tapi and Bombay under Peninsular component are surpluses in water
resources. On the other hand basins like, Krishna, Pennar,Cauvery etc. are deficit in water
resources. In the Himalayan component, surpluses are available in Brahmaputra its
tributaries and some of the tributaries of Ganga.
4.5.5 Link proposals .framed by the Agency:
The inter-basin water transfer link proposals that are framed and being studied by
NWDA are broadly the same as those indicated in the National Perspective Proposals.
However, there are reductions in the quantum of surpluses assessed now in the Mahanadi
and Godavari basins. The links of the National Perspective have been suitably revised.
The National Perspective had considered the surpluses in Mahanadi and Godavari as 22000
Million Cubic Meter and 28000 Million Cubic Meter against the present assessment of 11500
Million Cubic Meter and 15000 Million Cubic Meter respectively.
Some of the important link proposals framed by the Agency are described below:
Mahanadi to Godavari: A quantu"m of 8000 Mcm has been propos-ed for transfer
through Mahanadi - Godavari link taking off at Manibhadra on Mahanadi. The link after
providing for enroute irrigation in the Srikakulam and Visakhapatnam districts of Andhra
Pradesh proposes to deliver about 6500 Mcm of water to Godavari Delta.
Godavari to Krishna: The gross surplus available in the Godavari basin considering
6500 Mcm of water received from Mahanadi would be 21500 Mcm (15000 + 6500)
which -is contemplated for diversion to the Krishna through three links - (1) diversion of
1200 Mcm of water through Polavaram-Vijayawada link for supplementation of the Krishna
delta requirement, (2) about 4370 Mcm through Inchampal'li - Pulichintala link for taking
over part commands under Nagarjunasagar LBC and Nagarjunasagar RBC as exchange
and (3) around 14000 Mcm of water into the Nagarjunasagar reservoir after accounting
for transmission losses and enroute irrigation requirement. Diversion to Pulichintala and
Nagarjunasagar will need 105 MW and 1647 MW, respectively for lifting.
Krishna to Pennar : Out of the 14000 Mcm of water received at Nagarjunasagar
through Inchampalli-Nagarjunasagar link, 12000 Mcm is proposed for diversion through
Nagarjunasagar-Somasila link and the balance is utilised for taking over part command
of Nagarjunasagar LBC in exchange. The quantum of water reaching the Somasila reservoir
on Pennar after considering utilisation under part command of Nagarjunasagar RBC in
exchange as well as for additional enroute irrigation in the basin covering streams between
Gundlakamma and Pennar and losses in conveyance is around 9800 Mcm.
As the entire command of existing Nagarjunasagar Project under Nagarjunasagar
LBC and RBC are proposed to be taken over by the link waters, an equal quantum of
water as an exchange will have to be diverted from suitable locations viz. Srisailam and
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Almatti across the river Krishna to the needy areas. About 2300 Mcm is proposed to
be diverted from Srisailam through Srisailam-Proddatur link which would deliver water at
the proposed barrage near Proddatur. In addition , about 2000 Mcum quantity is proposed
for diversion from Almatti through Almatti-Pennar link to cater for enroute irrigation in Krishna
and Pennar basins. This link was not envisaged in the National Perspective.
Pennar to Cauvery :- About 9500 Mcm of water is proposed to be transferred through
a single link. The National Perspective had envisaged two links connecting Pennar and
Cauvery. The link outfall is at Grand Anicut on Cauvery. After accounting for enroute
requirement for irrigation and water supply to Madras City and transmission losses about
5000 Mcm of water will be reaching Grand Anicut. Out of this quantity about 3000 Mcm
is proposed to be utilised in Cauvery delta.
Cauvery to Vaigai : Out of the 5000 Mcm reaching Upper Anicut on Cauvery,
about 2000Mcm is proposed for diversion through Cauvery - Vaigai link for utilisation in
Cauvery, Vaigai and streams between Vaigai and Vaippar.
A number of alternative proposals are also under study based on which some
.modifications may be suggested in the link proposals. Though the surpluses in Mahanadi
and Godavari as assessed now are much less than earlier envisaged, additional waters
are likely to become available when Brahmaputra-Ganga link and Ganga-Mahanadi link
are considered.
4.5.6 Total funds and time requirements
The additional irrigation potential on implementation of inter linking proposals under
Peninsular and Himalayan components would be around 25 Million Ha from surface waters
and 10 Million Ha from increased use of ground water. The approxi mate cost of capital
works , at current prices, involving inter linking proposals for irrigation benefits, can be
roughly assumed as RS.50,000 crores for Peninsular Component and Rs. 1,00,000 crores
for the Himalayan Component. Branch canals, distributaries, minors, field channels etc.would
cost about Rs.100,000 crores. Similarly the cost of power component involving a total
of about 30000 MW part of which would be in Nepal and Bhutan would be of the order
of RS.80000 crores.· The execution of all these works may take about 40 years including
detailed investigation , design etc. Thus the yearly investment on capital works for Himalayan
and Peninsular Component may be around Rs. 8500 crores.
All feasibility reports of links under the Peninsular Component are likely to be
completed by the year 2002 AD. Similarly the feasibility reports of the links under the
Himalayan Component are likely to be completed by the end of X Plan (i.e.2007 AD).
The likely time frame excluding negotiations, agreements, clearances, fund
allocations and implementation is given in Fig.6.
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5.0 ISSUES INVOLVED IN INTER-BASIN TRANSFERS.
5.1. General
Inter basin transfers involving long distance link canals do not have unsurmountable
technical problems. Modern technology would help over come them . Pumping large
quantities of water over fairly high heads during monsoon when flood water is generally
silt laden is one such problem. Development in hydraulic machines are well advanced
in this regard. Tunnelling high embankments, long river crossings, minimising seepage losses
etc are some other difficult problems but with solutions. Main objection to the implementation
of inter basin transfers and large storage may come from environmentalist regarding
submergence of forests etc. It is seen that out of total forest cover reduction since
independence only 12 per cent can be attributed to storages created. The over all
environment is seen to improve in the vicinity of these storages. Health and living standards
of the people are seen to improve.
5.1.1 Peninsular Component
Some new .Iarge reservoirs such as Manibhadra on Mahanadi (49 m high) Inchampalli
on Godavari (41 m height) Polavaram on Godavari (23 m height) etc are essential
components. It is estimated that these reservoirs .will involve following submergence.
Forest
(ha)
Cultivated
land (ha)
Population
affected(Nos.)
Manibhadra
Inchampalli
Polavaram
9828
21734
3887
9500
37782
43158
I
79000
100080
109087
It may be possible to reduce the negative impacts by reducing the dam heights
and consequently increasing pumping heads and canal capacities. Carefully worked
out packages for rehabilitation and resettlement would have to be drawn out during
the preparation of the detailed project reports before the decisions are taken on
the implementation.
5.1.2 Himalayan Component
Most of the storages are in Nepal, Bhutan. Bangladesh is also concerned about
lean season flows. There is need to include them in sharing the benefit from these projects.
.But these dams are unavoidable due to their very large power potential
Seismic safety of dams will also be an important issue in Himalayan dams. We
are already facing problems in Tehri. Many high dams are already in operation in similar
seismic zones.
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Main objections to the implementation of Himalayan Component would be from
environmentalist and project affected peoples. Planning for minimising the adverse impact
of environmental aspects need to be done meticulously. Proper rehabilitation and
resettlement packages may ensure implementation without much resistance from public. .
Human approach will however be needed.
The Himalayan rivers are international rivers involving Nepal, Bhutan and Bangladesh.
Nepal and Bhutan will have advantages in terms of revenues from sale of power. These
development could make the Himalayan component of the National Perspective feasible
from legal and administrative· point of view. Bangladesh will have increased lean period
flows.
Another constraints in planning for Himalayan Component is restricted nature of
Survey of India maps and water related data. These maps and data need to be considered
for declassification. Civilian version of the maps can be brought out if necessary.
5.2 Links involving two or three States
Some of the links involve only two or three States like Damanganga-Pinjal link
and Par-Tapi-Narmada link. The Damanganga-Pinjal link will primarily benefit Maharashtra
to meet water supply requirement of Metropolitan city Bombay although some area of Gujarat
also falls in the catchment of this link. On the other hand ParcTapi-Narmada link will primarily
benefit Gujarat, although some area fal·ls in Maharashtra. With understanding between
States concerned for over ?II benefit and a little give and take, it should not be difficult
. for the two States to agree to these links. .
The Pamba-Achankovil-Vaippar link also involves only two States of Kera!a and
Tamil Nadu. While primarily benefit of irrigation goes to Tamil Nadu, there can be detailed
. discussion as regards the sharing power benefits and bearing of cost between two states.
A mutually beneficial solution perhaps may be possible for this link also.
5.3 Apprehensions of the State Govts
Some states have expressed apprehension about the reliability and adequacy of
the water transfer from distant sources as from Mahanadi to Godavari, from Godavari to
Krishna and further south and as a result the existing irrigation might suffer for want of
water. The apprehensions are perhaps exaggerated. Peninsular links wou ld be operated
in an integrated manner to transfer only surplus waters. Befor~ any water is diverted from
any basin, it would be ensured that the entire reasonable in-basin needs in ultimate stages
of development are met with first. For this purpose, appropriate operation rules and fresh
agreements will have to be made. Even, in case of any snag in water supply from other
basins, the diversion of water from a particular basin will have to be reduced accordingly
giving priority to the in-basin needs. Since terminal reservoirs as well as the control points
on the rivers of Godavari, Krishna and Pennar are under the control of States only, the
diversion of water at the control points through the links can be monitored by them.
Some States have apprehension that the existing Tribunal awards will get disturbed.
They feel that no water can be taken out of the basin due to the Tribunal awards. Studies
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for inter basin transfer are for the optimum utilisation of the water. Surpluses are worked
out after considering all the inbasin needs. After the studies are over the states can consider /
them and enter into a fresh agreement for the sharing of the water.
It may be mentioned here that it is not generally convenient for the state surplus
in water resources to agree to such surpluses without expressing apprehensions/
observations. If the proposal of transfer of water requires entering into an interstate
agreement in the future , the concerned state .is unlikely to agree to the existence of
a surplus at present, because it may apprehend a loss of edge in the negotiations through ·
a premature acceptance. Also, since the future always has considerable uncertainties,
it may perhaps not even be practicable to insist on a complete acceptance before the
whole issue is settled. The past experience shows that the efforts in this direction have
to be consistently continued for a long time. The feasibility studies will form a very useful
basis for discussions and agreements among the States concerned.
5.4 The draft National Policy for allocation of waters of an inter state river basin
amongst States
A 'Draft National Policy Guidelines for water allocation amongst states' was
considered in National Water Resources Council held on 6th February 1996 under the
Chairmanship of the Hon'ble Prime Minister. The broad objectives governing the allocation
of waters are:
a) The need for developing the waters of the inter state rivers for the betterment
of the population of the cobasin states to the extent such developments are
not detrimental to the interests of the other cobasin states.
b) The need for developing the water of the river basin for the well being of
the nation.
The draft guideline interalia provides that a State shall be free tbutilise the allocated
water in any part of its territory unless specific restrictions are warranted from overriding
national priorities. It also provides that the Centre would take care of the water allocations
required in the National interest in the process of the allocations. It also states that the
claims of a non basin state in the basin water could be considered in the scheme of
allocation, in the national interest, to the extent these are found fit in the scheme of
allocation.
6.0 POINTS FOR DEBATE
a) Water Development and Management can be planned on administrative/political
unit like a state basin or 'basin state
Planning for Water resources development and management has traditionally been
attempted on administrative/political unit like a state basin or basin state. Water is presently
included in the state list under Entry 17 of List II, Schedule VII of the Constitution. It
is natural therefore for the states to plan,prioritise the uses and develop its water resources
in its best interests. This leads to an efficient and satisfactory way of water resources
develooment in tune with the neeris...Of. the individual state.
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It is, · however, well known that water does not obey administrative or political
boundaries. Earlier the planning ·was project specific. Since the number of projects were
few, inter project considerations were relatively absent. This approach, however, does not
lead to optimal benefits out of the available water resources for various purposes. Water
is already a scarce resource in many basins and will become scarce in many other basins.
The process of planning has also become complex because of conflicting demands. National
Water Policy adopted by National Water Resource's Council also advocates development
of water resources taking basin as a unit.
What is the likely difference in the water development scenario between;
(a) planning done basinwise without any primary consideration of state boundaries
and
(b) planning done statewise without any primary consideration of basin bound
aries? It appears that the course (b) would be different from course (a) in
the following ways:
1) If there are any possibilities of having dams when most submergence
is in one state and most benefits like irrigation and hydropower are
in other state/states, these possibilities will tend to get ignored in the
course (b)
2) Possibilities involving storages or barrages in the upstream state
supporting irrigation canals crossing border to irrigate lands in both
the states, may get ignored the upper states will prefer smaller scale
of development which avoids trans boundary benefits. In fact
limitations of available storage capacity is already hindering Indian
water development. Like rivers, natural reservoir sites a"e a national
resource which needs to be exploited to the maximum.
3) Joint projects causing disbenefits and benefits to numerous state may
get ignored
4) A proper phasing of the storage development so that sedimentation
of the lower state reservoirs is checked by developments in the upper
state may not take place.
5) An unplanned lower use, started without agreement with the upper
state may get threatened by later actions of the upper state.
6) Conversely, the need to maintain a less efficient lower state project
may thwart a proposed more efficient upper state project.
7) An upper state may plan or execute an interbasin transfer of the basin
waters, within its territory, ignoring the need of the inbasin or interbasin
requirements of the lower state for the same water.
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8) Multiple ownership of structures in a basin complex may make the
possibilities of integrated systems operation more difficult.
If one looks critically to the Indian water development in this light, one would find
possible examples of all these types. However, one would also find that a very large
number of joint projects have been constructed or are under construction. Thus, although
statewise rather than basinwise planning is the rule, states have not been too myopic and
have to some extent shown preparedness to reap the additional benefits through co
operative action.
It can be argued that a total basinwise planning approach towards increasing the
national well ·being alone, ignoring statewise or regional consideration is also unacceptable.
For example, such a policy may make the upstream states suffer larger submergence, while
reducing their irrigation benefits through costly canals in rugged topography in favour of
simpler canals in plain lands lower down. Even if more efficient in terms of national economy,
such actions may be objectionable. The fact that states in India represent not only political
administrative units, but also sub-cultures which need to be preserved and developed, may
give more credence to such objections.
Thus, while the basin has to remain a national planning unit, the regional , non
co-basin and state interest would also have to be safeguarded. The issue is complex, and
considerable debate may be necessary to guide the location specific solutions.
(b) Are interbasin transfers within the basin state to be allowed or encouraged.
A common issue coming up in the process of deciding water allocation, amongst
states, is the issue of interbasin transfers within a cobasin state. A state can plead that
once a certain quantity of the basin water is allocated to it, it is free to use it anywhere
in the state, including its area outside the basin . Another state may ;Jlead that only the
in basin requirement needs to be either considered or allowed in the arrangement.
Stretching the latter argument a little, in that school of thought, the priorities of use can
be as follows:
i) In basin use within the co-basin States
ii) Use in other basins, but within the co-basin State
iii) Transfer to other basins for use in non-cobasin States.
Also, according to that school, a lower priority use can be considered only after
all the higher priority uses of all the co-basin States are met.
In the case law in India, mostly (but not always) the former view of allowing the
state to transfer water outside the basin has been favoured. Also, traditionally, many
projects, when the irrigation is within the boundaries of the owner State (or group of States),
but outside the basin, have been planned. Nagarjunasagar, Tungabhadra, Ukai, Sardar
Sarovar etc. can be quoted in this regard. If the latter view has to prevail, it has to consider
these ground realities as historical abberations. It has also to disregard the fact that if
: 29 :

the basin is a natural geographic unit, the State also is a political administrative unit taking
a holistic view within its territory. The latter view, however, would strongly support the
basinwise planning concept.
The issue requires a debate to reach a consensus.
(c) Should Water be made available to non-basin States through long distance inter
basin water transfers.
As discussed earlier, the issue of inter basin transfer came up before Krishna Water
Dispute Tribunal and Narmada Water Dispute Tribunal. The Krishna Water Dispute Tribunal
however, did not deal with the inter basin transfer to the non basin .state. The Narmada
Water Dispute Tribunal considered the claims of Rajasthan, a non basin state for a share
of waters of inter state river Narmada. The Narmada Water Dispute Tribunal held that
Rajasthan being a non basin state is not entitled to any portion of the waters of the Narmada
basin. However, with the consent of the basin states Rajasthan was admitted to the dispute
and water has been awarded to it.
The National Water Policy adopted by the National Water Resources Council also
states that water should be made available to water short area by transfer from other areas
including transfers from one river basin to another.
It will however be difficult to prioritise the needs of the non co-basin states. There
may be more than one state asking for a share in the surpluses available elsewhere.
Techno-economic viability alone cannot be the criteria for deciding on the share of each
non co-basin state. Other factors, like size of the water deficits, availability of alternate
sources of water, possibility of savings in the inbasin available water through better water
management etc. also need to be considered .
(d) What is to be the role of Union Government in regard to the
inter basin transfers
The National Policy Guidelines for Water Allocation of Inter State Rivers amongst
States was recently considered in the the Third National Water Resources Council held
on 6th February,1996. The draft guidelines inter alia proposes that Centre Will be a party
to look after the National interests like environmental concerns, pressing need of non co
: 30:

-
Water Dispute Tribunal (which has been quoted elsewhere,where the Hon'ble Tribunal has
indicated the possibility of enacting a law by the Parliament under Entry 56 ) indicate that
en6ugh rationale exists. On the other side, any possible interpretation of the river water
being a joint property of the co-basin state alone will negate the rationale. The whole issue
needs to be debated, if the former view prevails, the public debate may lead to a suitable
legislative action by the Parliament.
(e) Is it practicable to decide long distance inter basin transfer through an accord
of concerned states
One important aspect of long distance transfer of water is that it involves one or
more non co-basin states incl1uding the target state. The conflicting interests of the basin
states, target states and enroute states are not easy to resolve. Inter state water disputes
involving only basin states, take decades to resolve. Accord Involvling non co basin states
would be even more time consuming and difficult to resolve . ~
Considering this, one view is that it may be more practicable for the Union Govt.
to look after the interests of the non co-basin states.
At the same time it is true that accords between concerned states are arrived
at after considerable delliberations he'ld over long periods which take ,into account all
conflicting interests. Therefore the other view could be that the issues involved are better
debated within the states and solutions acceptable to the people of the concerned states
at large may be evolved to ensure their long term political commitment to the accord. The
Union Govt. by its very nature cannot be sensitive to all local issues.
(f) Should the Tribunals decide on the ultimate requirements of the basin and
identify balance surplus waters
Presently the Inter State Water Dispute Tribunals allocate the availablle waters
amongst the co basin states perhaps without fully considering the ability of the basin states
to utilise the waters in the foreseeable future. This allows the tribunal or the negotiating
machinary to allocate a sub basin fully to a State.Thus, the possibilities of surpluses being
available to a State after meeting the ultimate requirements are not considered at present.
Thi~ leads to a situation where considerable water may go unutilised to the sea from surplus
basins. The allocating machinary may have to consider this aspect also and, the option
of not allocating all the waters to the basin States can perhaps be made explicitly available.
Determining the surpluses which are likely to occur at the ultimate stage, however,
is not easy. Water requirements for various uses will keep changing with time and
technology available. No state would like either to make any commitment regarding its
maximum requirements or to lose its rights on the surplus water forever. States would
prefer the water to be allocated to itself first and then it will be for the states to determine
the surpluses or deficits if any after meeting their needs.
(g) Long distance transfers vis-a-vis lifting
Long distance transfers are very costly. It may often be more attractive to utilise
: 31


the water enroute rather than carry it over longer distances. Enroute area which can be
commanded by gravity are already being considered in the present proposals. It may also
be feasible to utilise more waters enroute by lifting the water. This will increase the cost
of power required for lifting but reduce the cost of canals. This will also make the donor
States less hostile to the proposals, as more waters can be utilised within the basin State.
On the other hand the target basins which are facing acute shortages will receive
correspondingly less water.
However, lifting beyond a certain point may not be economically viable. Re'iiability
of a system depending on power for lifting will be less than the one depending on gravity
flow.
Economic efficiency may provide a tool for deciding the trade off amongst the long
distance water transfers vis-a-vis lifting and local use on high grounds. But this would
presume that water transfer are mere economic activities to be judged by the national
economic efficiency. This pOint is debatable.
(h) Should normal criteria of economic analysis be applied for inter-basin transfers
Inter basin transfers 'are proposed for the benefit of drought prone areas which have
no other source of water. The link proposals often become unattractive when viewed from
the perspective of conventional criteria of economic analysis. Water resources development
has as one of its objectives the socio economic upliftment of rural masses and alleviation
of poverty. From the socio economic point of view it may not be justified to increase the
wealth of those who are already better off. Equitable distribution of our water resources
and thus the equitable distribution of our wealth perhaps need to be given greater weightage
while evaluating the water resources projects, in terms of the directive principles of the
Constitution.
Water for drinking may have to be either excluded from any economic analysis,
or valued at the cost of alernatives, provided they exist. Also, given the large rural population,
and the lack of any alternative source of employment and income generation except
agriculture, the employment benefits of water transfer may have to be valued at appropriate
social costs.
Keeping in view the fact that inter basin transfers involve waters which are surplus
to the requirements of the donor basins and are- the only possible solution to the pressing
needs of the donee basins, there is perhaps a case for relaxing the normal criteria for
economic analysis, or alternately to have regional distribution as a criteria.
Whereas water for domestic purpose can perhaps be taken out of the economic
analysis, water for the purpose of producing food or providing employment cannot perhaps
be given over riding consideration. Same investment in less water consuming activity
may be more paying. Decisions in such a situation may have to be based on economic
criteria as the capital is always a scarce commodity.
This will be more so when the capital in question will have to come increasingly
from the private sources. The debate perhaps needs to strike a balance between a pure
: 32:

Indian Water Resources Socien'
national economic efficiency criterian, and a criterian justifying high cost transfers for
providing livelihood.
(i) Is" better water management" a substitute to "water transfers"
If we presume that through management improvements the yields will increase very
considerably, water transfers may not become essential. Necessity of National Water Grid
will perhaps diminish with the improvements in the fields of biotechnology, water
management techniques, agricultural practices etc. It may be possible to increase the food
yield per hectare from irrigated and rainfed agriculture tremendously in future, thus reducing
the need for bringing more land under irrigation. Better management may become
economically more attractive than bringing water through a costly Grid. However, the
issues is: whether such wishful thinking should be reflected in our long term planning
strategy.
(j) Inter basin transfers as a tool for socia-economic developments and poverty
alleviation programmes
lnterbasin transfers will bring large additional area under irrigation and generate
power. The implementation of the schemes will require hundreds of thousands of engineers, "
technical personnels, skilled and unskilled workers. Millions of man days of work will be
created in the land brought under irrigation. The power generated will give rise to many
agro based industries in the rural area. Besides the economic benefits to the country as
a whole the impact of inter basin transfers on the socio-economic development and poverty
alleviation in rural area would be tremendous. With the improvement in the standard
of living, an improvement in the quality of life can also be expected. Rural health care,
education, family welfare are bound to improve.
On the other hand Investments in inter basin transfers will have to compete with
other equal or better options for socio-economic upliftment and poverty alleviation
programmes. With the present liberalisation programme, new opportunities of employment
generation are being created. Agriculture and agro based industries may not be the most
efficient in terms of economic returns .
(k) Need for Constitutional amendment
In case it is decided that the Centre should play an increased and pro active role
in planning and utilisation of water resources of the country including through inter basin
transfers, then some of the important options available are :
1) Transfer of the subject of development and management of water resources
from State list (List-II) to Union list (List-I)
2) Include the subject in the concurrent list (List-III)
Both these will require Constitutional amendments for which some feel that the
present political climate is not conducive. Besides, there are many practical difficulties
for the Centre to get involved in the day to day operation and management of large number
: 33:

of small and large projects across the country. Others feel that the Indian Constitution
has evolved through numerous amendments as per requirement of the time, and water
related amendments need to be considered.
Another possible option will be passing of more Central Legislations under Entry
56 of List-I to enable Centre to play more pro active role both in regard to regulation
towards optimum water development and in regard to avoiding of the interstate differences.
(I) Extent of national responsibi'ity to provide water to people
There cannot be two opinions about the responsibility of the state to provide water
to meet the basic of human needs which is water for drinking and to a lesser extent
for producing food. Commercialconslderation cannot be dominant when it is a question
of life and health of people. In the case of Food, however one has the option of producing
it elsewhere and then transport to pl'ace of need. However water for drinking needs
to be transported to place of need. Responsibility for providing water for drinking should
normally rest with the Government. Commercial consideration can perhaps decide the
need for water for other purposes. This logic cannot, however, be stretched too far. It
may often lead to wasteful and inefficient use of scarce resource.
(m) Whether food self sufficiency should be national goal
Many economists propogating free market feel that one should engage in activities
wrlich one can do with the greatest efficiency. In order to be self sufficient in food, increased
irrigation through long distance water transfers may be required. Investments in long distance
water transfers may be economically less efficient as compared to say industrial and other
commercial investments. It may not be prudent to make investments to achieve complete
food sufficiency through long distance transfer of water. Deficiency in any out put including
food if it occurs can be met from imports, from those who can produce that out put more
effiCiantly. There are instances where many smaller nations depend on import for 'meeting
their food requirements. Countries like Japan, England, Saudi Arabia etc. depend on
imports to meet a large part of their food requirements.
However many others feel that a nation of the size of India cannot afford to be
not self sufficient in food requirements. The world trade in foodgrains is not large enough
to meet the needs of a large country like India. World trade in rice for example is only
18 million tonnes at present. Large imports by India would affect the price stability.
Infrastructural bottlenecks like port facility, shipping, roads, railways etc. are other constraints
on increasing the trade in foodgrains. Also many of the nations who do not chase food
self sufficiency as a goal seem to occupy a more commanding position, politically and
economically. Thus, the threat of use of food as a weapon may not be a deterrent to
them.
(n) Possibility ·of private funding/soft loan from International Agencies
Inter linking of rivers are going to be gigantic proposals both in terms of sizes as
well as in terms of investments. However, if the investments are spread over a number
of years annual investment wi!1 not be substantially higher than the present level for water

Indian Wafer Resources Society
'1
resources sector and other poverty alleviation programmes. Private commercial fundings
in this sector are unlikely in view of low returns and large gestation periods. Govl has
to be the major investor in such large national projects where the operation and management
has to be governed by National considerations rather than commercial considerations.
A major change in the existing laws regarding land ceilings, revenue, labour etc.
can however change the scenario and investment in agriculture can become attractive for
the private and international agencies. Scientific farming and large scale mechanisations
will become feasible and attract large business houses in involving in Inter basin transfer
proposals. However the desirability for such changes may have to be debated.
External funding , both international and bilateral is not devoid of social obligations.
Avoiding large scale distress can become an important consideration . perhaps not only
because of ph ilanthrophic social considerations but also because such situations can change
the existing world order. However, whether India should work for obtaining such soft loan
for water transfers is a point requiring debate.
: 35:

1

Fig.l
INDIA
' '"
1b BAY
~~ ';'i<",,;;-KlTrl NOOi..-C U~)D~ F
ARABIAN
I c;Il ·~L
L~---.--. ENG A
SEA
f .It .: 1.. ..
. f •
• ~NOAMflN
e;,
MJO
NICOBAP.
ISLAND S
0 (INDIA)
8' rERJYAR OlvE510N • o·
"I>
72' 76' ~~ 92
36

T
I J!I
FIG.- 2
I

1

B E. T
---- -----~----~
OAS TUR PRO POSAL
37

r--'V",~v ,-'
,"---0'/(
'
( ;:.~
o _ _ .J/
GARLAND
CANAL
ARABIAN
SEA
c.. ,,'
BENGAL
LAKSHADWEEP'
( lNDIA) ,
HIIvIAUWAN CAi;AL
LEGEND
HIMALAYAN CANAL
GARLAND CANAL
PUMPING
"
BAY
OF
J'..0 AND
NICOBAR
ISLANDS
AN DAMAN
• tINDIA)
°iJ
o
- -: ..I...-.,---=)~-~

A ""nIAU
S [A
___...>11
Dr. K • L. RAO S
LEGEND
INTERNST ATiONALATE BOUN BOUNDAR
RIVER DARY Y
STATE CAPITAL
PROPOSAL
FI -G.- 3
J----~---'.~
~
LINK •
GANGAC
BRAHMAP~UT~ERY LINK
LINK A GANGA
CHANNEL
RIVER
REACH
NARMADA T
WESTERN R
0
GUJARAT
CHAMBAL T~JASTHAN
RAJASTHAN CENTRAL
-
38

FIG.·4
Proposed Links Under

National Perspective plan

1-llIllal~1Y<ln f-iivers Development Component
A rosi-f"h?cI11 M . Sane D(lrn·

El Kos I· Ci tl~I~1 ~ Soulher n Tr ibular y

C. GuI1c u ~ -G anga N1. Br(lhmopulra-Ganga
D. K(lrn(ll,· Y~muna (Allernalive-I)
.~..,.--'"."'
./ " E. Sharda- Yamuna N2. Brahmopulra-Ganga
L~ F. Yamuna-Sirsa branch or WYC (Allernalive-II)
G. Ganga· Sirhind canal N3. Brahmapulra- Ganga
H. Tajew~lia-Bhakra (Allernative-III)
I. Hari"e Tailand of RaJelslhan canal O. Farakka- Sunder bans
J . L:xl()n~io n or Rajasllinn canal P. Farakka-Durgapur
K Cllunol-Sono O . Dur gapur -Dwarkoshw~ll
L. Sone Bar rage- Kiul R. Durgapur-Suber narekha
Dwarkoshwar -Mahonadi
Pellinsular Rivers Dnvelopment Component
. ,. Mahar10di -Burhabalang
. ,u
. 1 1. Godavari (InchampalJi)
2 Mahanadi·Godavari,', Krishna (Pulichintala)
-D

3. Indravali- Wainganga

12. Godavari (Polavararn)
4 . Wainganga· Krishna
Krishna (Vijayawada)
5. Kr ishna (Sr isailam) - Pennar
13. Par- Topi-Narmada
6. Pennar (Gandikolta)
14. Damanganga-Tansa
PaJar-Cavvery
15. West ftowing rivers of
7. Cauvery - VGigai
Kerala & Karnataka
8. Godav(lf i (InchampaJli)
(West-Easl links)
Krishna (Nagarjunasagar)
(I) Pamba-Achankov il- Vaigai / Vaippar
9 . Krishna (Nagarjunasagar)
(II) Netravati-Hemavati
Pennar (Somasila)
(III) Bedthi-Varda
9.(a) Krishano (Almatli) - Pennar
16. Ken-Betwa
10. Pennw (Sornasila)
. 17. Kalisindh-Chambal
LEGEND PaL:lI-Cauvery
INTERNATIONAL BOUNDARY.. ... .-1- '._ _ "--
BASJN BOUNDARY .. .. ....:__ ..... .. ...... - -
RIVER ........................ ..................... .C===
LI[IKS ........... ._.. __ ...............................~

39

...

WATER BALANCE STATUS
BO,-------------------------~
eo
•I
l
l
I
o
"
~40
I
c
M
I
~
•
20
0
Avail·

ability

at 50%

Depend
ability

WATER
Avall- Unimate
ability Utlisalion
at 75%

Depend
ability

BALANCE STATUS
100
80
•I
l
l
I
80
S
.. 40
·•
•
T
20
0
Avall
abHity

at 50%

Depend
abHIIy

~""mNa
Avall- UKlmate
ability UIlisallon
at 75%

Depend
ability

~ONGOINCii CJPROP08ED
40

MAHANADI BASI N

GODAVARI BASIN

Fig. - 5
IRRIGATION STATUS
10 ,---------------------------,
8
..I
l e

~
H
I
C
r 4
•I
0
CULTURABLE ANNUAL
AREA IRRIGATION
IRRIGATION STATUS
CULTURABLE ANNUAL
AREA IRRIGATION
..I
l

•0
"I
~
•I
12
10
8
e
4
0

0
FIG. 5

41
KRISH NA BASIN
80,---------------------------,
70
80
I
·t tsO
I
•
o
K40
I
o
W
, 30
•I
20
10
Avall UHlmate
ab~1ty utIisatlon
'at 75%

Depend
ability

PENNAR BASIN
10 ,---------------------------,
Avail
ability
at 50%
Dwend
ability
8
•I
L
L
b 8
•o
¥I
o
w 4
I
l
·

Avall
ability

at 50%

Depend
ability

~IiXI8TINCl
Avail- UHimate
ability utIisation
at 75'%

Depend
ablilty

gOHOOINCl DpROP08EO
IRRIGATION STATUS
20
W
I
t 1t5
I
2
H
I
~
;
10
CULTURABLE ANNUAL
AREA IRRIGATION
IRRIGATION STATUS
3.8 ,---------------------------,
3
2.e
W
I
L
~ 2
~
H
I
i 1.15
A
••
o,e
0
CULTURABLE ANNUAL
AREA iRRIGATION
2e.-----------~--------------.

••
Fig. - 5
40,---------------------------,
30
•I
t
•
0
I
~ 20
•
I
M
,
••
10
0
Avail- Avail- Ultimate
ability ability UtllsatIon
at 50% at 75%
Depend- Depend
ability ability
2.5
2
•I
L
L
~ 1.8
,••
•1
0.8
0
Avall- Avall- Unlmate
ability abil~y Utiisatlon
at 50% at 75%
Depend- Depend
ability ability
Ir???JEXI8TINO gONOOINO C]PROPoeIO
CAUVERY BASIN

VAIGAI BASIN

42

IRRIGATION STATUS
4
M
I
t
•0
I
3
0
CULTURASLE ANNUAL
AREA IRRIGATION
IRRIGATION STATUS
0.5
0.4
I
·t 0.3
I
0
"
"•
! 0.2
O. ,
0
AREA IRRIGATION
CULTURABLE ANNUAL

Fig. - 5
ANNUAL WATER BALANCE
MANAS AT DAM SITE SANKOSH AT DAM SITE
20.,---------------.,
10
,~
,1
0
•
~
• 10
1
0
.. ..
.I I
T
•I
T
I
0
0
Avail· Avail· Unimate Avail· Avail· Ultimate
abllily abllny utlRsalion abilily abilily ut~isation
at 50% at 75% at 50% at 75%
Depend· Depend- Depend- Depend·
abilily abilily abitily abiltty
BRAHMAPUTRA AT JOGIGHOPA
600
500
B
I
L
L 400
I
0
N
C
u 300
B

I

C
hi
E 200T
R
E
100
0
Availabllily UHimate
at 50% Utilisation
Dependability Dependabilily
D EXISTING UTIL. ITIlIIIl ONGOING UTIL.
D PROPOSED UTIL.
43
Availabllily
at 75%

Perspective Plan for Preparation of Prefeasibility report of links/Feasibility
report under - Himalayan 2 0mponent
S.No. Name of the link VIII Plan
1995-96 96-97 97-98 98-99
IX Plan
99-2000 2000-01 01-02 02-03 03-04
X Plan
04-05 05-06 06-07
1. Kosi-Mechi
2. Kosi-Ghagra
3. Gandak-Ganga
4. Sarda-Yamuna
5. Karnali-Yamuna
6. Yamuna-Rajasthan
7. Extn. of Rajasthan
Canal-Sabarmati
8. Chunar-Sone Barrage
9. Sone barrage-Kiul
10. Sone-STG (Southern Tributaries
of Ganga)
11 . Brahmaputra-Ganga (II)
(Manas-Sankosh-Teesta-Farakka) .
12. Farakka-Sundrabans
13. Farakka-Durgapur-Subarnrekha
14. Durgapur-Dwarkeswar
15. Subarnrekha-Mahanadi
***** * ** * ** ** ** ** * * ***** ** ** **** *** * ** * ** ** * *
*******
*********
Prefeasibility ••**.**••**
* Feasibility *********************11"** *** *******
*'**1<' *'**'*** ** * * **'**'*'*'**.,.*.,.'***'*'****'**'**..
If ** ***** ** ** **** ****1t* **** ***** *** ***11'
**** *** * ***** * ***** ** ** ***** *******
** ** *** ********** ***** ********
Zl
~
en
',

NATIONAL WATER DEVELOPMENT AGENCY

Perspective Plan for Preparation of feasibility report of links under Penisaular Component

S.No. Name of the link VIII Plan IX Plan XPlan
02-03 03-04 04-05 05-06 06-071955-96 96-97 97-98 98-99 99-2000 2000-01 01-02
1. Mahanadi Godavari
2. Godavari (Polavaram) -
Krishna (Vijayawada) ***** * ** ** ********* **** ***** * ****** *** ** * *
3. Godavari (Inchampalli) -
Krishna (Pulichentala) ** ** ** * ** ** **** ** *** ** *** * * * ** ****11 * **** ****** *
4. Godavari .(Inchampalli) -
Krishna(Naga~unasaga0
5. Krishna (Srisailam) -
Pennar (Prodattur) ** **** ** ** *** ***** **** * * *** *** *** ******** *
6. Krishna (Nagarjunasagar) -
Pennar (Somasila) ***************1."***************1<**********
7. Krishna (Almatti) -
Pennar * ** *** ** ***it * * ***** ******* * ***** ** * ** .. ****
8. Pennar-Palar-Cauvery
9. Cauvery-Vaigai ** ****** ** * ** **** *** * **** * '* * * ***** * * *i:." *** * * i·*
*10. Par-Tapi-Narmada
11 . Daman Ganga Pinjal ** ******** *** * ** ***** * ** ** ************* ** *
*12 Ken-Betwa
13 Kalisindh Chambal * ** ** *....* ** ***** ******* ***** ** * 1<** *y*** * ** *
*14 Pamba-Achankovil-Vaippar
15. Bedthi-Varada
16. Netravati-Hemavati
Feasibility *****+**************************
*Feasibility completed
~
:!!
"
Q)
1

Indira Gandhi Canal in Rajasthan Another Example of Long Water Transfer Which has Converted Desert Area
of Rajasthan to Greens

Existing Grand Anicul Across River ·Cauvery In Tamilnadu

INTERBASIN TRANSFERS OF WATER FOR NATIONAL DEVELOPMENT PROBLEM & PROSPECTS WRD -1996

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