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COPP/PW/Ser. 18/63
REPORT
on
CONSERVATION OF WATER RESOURCES
and
CONTROL OF WATER POLLUTION
COMMITTEE ON PLAN PROJECTS
(BUILDINGS PROJECTS TEAM)
NEW DELHI
’
June, 1963
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GO PP/PWB/Ser. 18/63
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REPORT
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ON
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CONSERVATION OF WATER .RESOURCES
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GONTO.OL OF WATER POLLUTION
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CO14MITTEE ON PLAN PROJECTS
(Buildings Projects Team)
Nev; Delhi,
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(June, 1963)
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**»*•»*»
Composition of the Buildings Projects Team
Lead er
Shri S.K. Patil, Minister for Food and Agriculture.
Members
Shri Sarup Singh, I.S.E. (Retd.)? formerly Director,
National Buildings Organisation.
Shri N.G. ^ewan, I.S.E., Chief Engineer, Central
Public Works Department.
Maj. Genl. Harkirat Singh, Engineer-in-Chief, Army
Head Quarters.
Shri N.V. Modak, Consulting Public Health Engineer,
Bombay.
Shri C.B. Patel, Director, National Buildings
Organisation (ex-officio).
Member Secretary
Shri T.S. Vedagiri, Superintending Engineer.
Deputy Secretary
Shri P.S. Krishnaswamy, Superintending Engineer.
REPORT ON CONSERVATION OF VATER
RESOURCES AND CONTROL OF VATER POLLUTION
CONT 0iTS
Page
Introduction
1
1.
Conservation of
water resources.
7
2.
Control of water
pollution.
16
Appendix
I.
List of places
visited and persons
with whom the panel
had discussions.
39
INTRODUCTION
The Panel set up by the Committee on Plan
0-1-
Projects, for the study of National Water Supply and
Sanitation Schemes pinpointed attention to the need
for coordinated action in regard to the conservation
of water resources and control of water pollution.
During the discussions the Panel had with the
Planning Commission and the Central Ministry of
Health, it was decided that this subject could be
taken ur> by the Panel itself for further study
To facilitate a'detailed study of the
s*
problems three more Members, Dr.ZSeshagiri Ra#,
C- '
V.
Dr. T.R. Bhaskaran and ShrVSubramanyam were added
and report.
to the Panel.
The. composition of the Panel as expanded
0.2
is given below;
;
" :
■
'
'
p
' ’I"
I
'
Shri N.V. Modak,
Chai'rman
Consulting Public Health Engineer,.
\
Bombay.
Shri p.C. Bose,
'Executive Director and
Chief Engineer,
Calcutta Metropolitan Planning
Organisation, Calcutta.’
'Shri R.D. Varma,
Member,
Oil and Natural Gas Commission,
Dehr a Dun.
Shri S., Rajagonalan,
Asst. Director'General,
Ministry of Health,
.
New Delhi. .
:f
.
Member
... <•,.
n
■ •
Member
^Member
.. ....
.
- 2 Dr. S. Scshugiri Ruu,
Chief U’Odlth),
Planning Commission,
Nev Delhi.
Member
Dr. -’.R.. 3haskr*iun,
Member
Coordinating Officer, ICMR,
All-India Institute of Hygiene and
Public Health,
Calcutta.
.
0.3 ..
-Shri V. Cubramanyam.
Superintending Geologist ?
Geological Survey of India,
Ryd erabad.
Member
Shri J.S. Vedagiri,
Buildings Projects Seam,
Committee on ELan projects,
New Delhi.
-iemberSecretary
«ny positive programme for conservation
of water resources in the country must follow an intelligent
field surveyfor the exploration and examination of all
available resources like minor and major river basins,
lakes and-tanks and under-ground sources and an assess*--
ment qf.the needs of the various interest, such as-,
irrigation, a^ricuiture? navigation, pisciculture,•
industrial andr domestic water supply, recreation etc.
Based on such an overall study of the problem the relative
priorities for the different uses could be decided on a
realistic' basis which alone would ensure the success
of the programme.
«ny piecemeal study of the problem,
on-the other hand, would not only result in duplication
of time and effort but also result in a clash of
interest between the different users and an inequitable
sharing of the available resources.
This would
adversely affect the balanced and planned development
3 of the country's economy.
0f4
although there is now an increasing
awareness of the need for a programme of water
resources conservation, -a systematic approach to
the problem is yet to be made.
Jater conservation
studies hitherto wore mostly confined to theoretical
assessment of river valley potentials based on
topo-sheets.
Positive river gaugings have been
taken in respect of the major projects so far
executed but these have not covered, the entire
river basins.
The Geological Survey of India and
the Exploratory Tubewell Organisation have collected
useful data on ground water in respect of the
ureas so far covered by them.
0.5
Very few of the country's rivers are
carrying perennial surface flow.
rtll the same,
a large volume of wacer goes into the sea
unutilised during the monsoon months.
Sub-surface
supplies in the river valleys during the dry
months are mostly precarious.
This variation
between the two excremes acCs as a great handicap
to the prosperous growth of communities or
industries in the river valleys at present.
Conservation of available sup.lies in these
river basins in order to meet the needs of the
industries and communities uniformly throughout
the year is a nation wide problem of great
magnitude and importance.
4
0.6
,Vhile the country ’ s. water .resources are yet
to be fully harnessed the situation with regard to
available supply is aggravated by an increasing .degree
of pollution in almost all the river courses..
With
the rapid industrialization, growing urbanization and
increase in population in many parts of the country
there'is an indiscriminate discharge of untreated or
inadequately treat.od community and industrial wastes into
the water courses.
Communities and industries have to
spend more in treating polluted waiters to make them
fit for their use.
Public health is also endangered.
Fish and ether aquatic life are also affected.
0.7
The problems of water resources conservation
.and pollution ■ control( both of surface water and ground
water) have assumed a disturbing magnitude in the .
.industrially advanced countries because of lack of
, ^'adeqUat.e,.,control in the initial stages’.
It is necessary
. . for us; to benefit by the experience “of other countries
' and start taking preventive and control measures in time.
f'0.8.
The nature and magnitude of the problem
calls for an. e-xtensive field survey and analytical
‘study, of the data on a comprehensive basis before
any. fruitful .programme of action could be formulated
dr implementation in the coming years.
It is
encouraging, that the Natural Resources Committee of
..„,t^e. Planning Commission have already’under contemp-
.. latiqn the setting up of a work in.- group to study
water.resources conservation on i country wide basis.
■. 5 In regard to water pollution control, the Union
Ministry of Health had already set up a three
man Committee to prepare a draft enactment for
water pollution control at the Central and State
levels.
This Committee has submitted its report
recently.
In these circumstances, the Panel
has confined itself to a critical analysis of the
present situation both in regard to water resources
conservation and water pollution control so as to
indicate the broad lines of action which need to be
pursued vigorously to achieve the objectives in
view.
A questionnaire was issued to local
authorities and industries all over India to elicit
information in regard to quality and quantity of
effluents and the extent of incidence of stream
pollution in the concerned areas.
Sample studies
were made in selected industrial areas in tfest
Bengal, Bihar, Bombay and Delhi.
The Panel also
visited a few industrial units and held discussions
with local officers.
A list of places visited
and officers with whom discussions were held is given
in Appendix I.
0.9
In the accompanying report the Panel has
dealt with the more important issues bearing on
conservation of water resources and on control
of water pollution under two separate sections
and hopes that the report wou^d help in initiating
- 4 -
rVhile the country's. water .resources are yet
0.6
to be fully harnessed the situation with regard to
9
.
available supnly is aggravated by an increasing .degree
of pollution in almost all the river courses..
With
ths rapid industrialization, growing urbanization and
, ,.’5 I
increase in population in many parts of the country
there”is an indiscriminate discharge of untreated or
inadequately treated community and industrial wastes into
the water courses.
Communities and industries have to
spend more in treating polluted waters to make them
fit for their use.
Public health is also endangered.
Fish and ether aquatic life are also affected.
The problems of water resources conservation
0.7
.and. pollutioncontroK both of surface water and ground
water) have assumed a disturbing'magnitude in the . .
.industrially advanced countries because of lack of
.
adequ'at.e-,-,control in the initial stages’.
ft is necessary
. . fonus. to benefit by the experience "of other countries
. ' and start taking pr'ev-entive and control measures in time.
The nature and magnitude of th e problem
r’O. 8.
calls for an extensive field survey and analytical
— I •>
’ '‘jl ’.
.
.
‘study- of the data on a ccmp.rehensive basis before
,V1.any. fruitful programme of action could be formulated
„f or implementation in the coming years.
It is
encouraging, that the Natural Resources Committee of
...,rtjqe, Planning Commission have already "under contemp.. Ration the setting up of a working group to study
water.resources conservation oh a country wide basis.
uo- z. •
- "
.. 5 -
In regard to water pollution control, the Union
Ministry of Health had already set up a three
man Committee to prepare a draft enactment for
water pollution control at the Central and State
levels.
This Committee has submitted its report
recently.
In these circumstances, the Panel
has confined itself to a critical analysis of the
present situation both in regard to water resources
conservation and water pollution control so as to
indicate the broad lines of action which need to be
pursued vigorously to achieve the objectives in
view.
A questionnaire was issued to local
authorities and industries all over India to elicit
information in regard to quality and quantity of
effluents and the extent of incidence of stream
pollution in the concerned areas.
Sample studies
were made in selected industrial areas in #est
Bengal, Bihar, Bombay and Delhi.
The Panel also
visited a few industrial units and held discussions
with local officers.
A list of places visited
and officers with whom discussions were held is given
in Appendix I.
0.9
In the accompanying report the Panel has
dealt with the more important issues bearing on
conservation of water resources and on control
of water pollution under two separate sections
and hopes that the report wou^d help in initiating
- 6 •-
necessary action by the appropriate"agencies to gain
the objectives in view.
0.10
The Panel is' grateful to the authorities
at the Centre and the States and of the Industries who
were good enough to furnish the information required
and for the facilities offered to the Panel for local
visits and discussions.
7
1. CONSERVAflOU OF VATER RESOURCES
1.1
■ As a resource, water is a requirement so
basic and indispensable to a country’s existence and
economy that the use of all other resources is
depended upon an adequate and satisfactory supply
of water.
If this is lacking, ohe use and deve
lopment of other resources become difficult.
1.2
A broad survey of the present situation
regarding water resources in the country would be
The surface water resources of our
of interest.
country have been estimated at about 1356 million
acre feet.
Almost the entire quantity is derived fronj
precipitation.
There is a considerable variation
in the available surface water resources in different
parts of the country depending on the varying
precipitation from place to place.
Of the total
1356 million acre feet of surface water, it has
been estimated that only about l/3rd or roughly
450 million acre feet would be available for
beneficial purposes, the other 2/3rd not being
available due to various psysiographic, geological
and climatic factors.
1.3
It has been estimated that only about 27
per cent of the useable flow or 8;9 per cent of the
total annual flow has been utilized, upto the end of
1961.
It is reported that roughly 70 million acres
have been brought under irrigation from major, medium
8
and minor projects so far and it i s expected that
the overall ultimate irrigation potentialities from
further irrigation projects would bring in an additional
100 million acres under irrigation.
Even after
completing ail potential irrigation projects, a
large quantity of water out of the computed
useable flow would remain unused.
There is,
therefore, considerable scope for harnessing available
water which will remain unutilised.
For this to
be possible, it may be necessary to make radical
innovations in the concept of irrigation projects
and to reorient cur ideas with regard to conservation
of water.
Combined utility projects to serve all
common interest may have to be thought of
transcending the normal barriers of the State,
individual river basins and the like.
Multiple dams
.along river basins should also be thought of to
suit locations of industries and community groups
under a master plan drawn up for this purpose.
1.4
Anart from surface water, ground water
constitutes another major sources.
The occurence
of ground water 'in different parts of the country
is conditioned not or£y by the local precipitations
of rainfall but also by the geological formations,
which show a wide variation between different areas
of the country.
Adequate ground water can generally
- 9 -
be tapped for irrigation or other large
scale uses from the alluvial or sedimentary
(Tertiary or Gondwana) terrains through tubewells.
Water occurs in limited quantities in the pre
cambrian crystalline or sedimentary or Deccan
trap terrains and is developed for industrial and
community needs by means of shallow or deep wells.
Ground water occurs in varying quantities in the
Himalayan terrains as well as where different types
of rocks are met with.
1.5J '■ .
It has to be stated that with regard to
’ 'r'T x/'-'
the study of ground water resources, we are just
at the beginning stages.
For the past few years,,
the geological survev of India'has been advising
on local ground water problems and carrying out
regional ground water surveys in specified areas
on request.
Large parts of the country have been"
geologically mapped and general data on the
occurence of ground water in different terrains of
the country have been, gathered.
But the potentialities
of our ground water reservoirs are yet to be fully
explored.
In recent years the Exploratory Tubewell
Organisation of the Central Government has helped
in exploiting ground water resources in specific
areas for minor irrigation.
10
1.6
Even in regard to areas where we have
data on the ground water potentials, sufficient
material is always not available to forecast the
qualitative aspect of the wat'r available in such
areas.
Over large tracts of the country particularly
in Central India the development of ground water
is still a speculative venture.
A sustained
programme to explore the ground water resources
in all parts of the country should therefore be
undertaken in order to prepare a comprehensive ground
water map of the country indicating the areas of
meagre, medium and plentiful ground water resources
and the quality of supply so available.
Regions of
meagre ground water potentials could be exploited
to provide the much needed community water supply
system, in these areas.
Regions of medium
potentials could, be utilised to serve the dual
purpose of community and industrial water supplies
as well as minor irrigation works to the extent
local,.resources .permit,;, while the areas of plentiful
ground water storage could be exploited so
as to supplement surface water resources for
irrigat ion..and,other major uses.
In any case, the
exploitation of ground water resources in the
country should.receive high priority and sustained
attention as part of a well planned scheme of
conservation of visible and hidden water resources of
the country.
■
'■ 11
1.7
With the progress of industrialisation,
raising of living standards and increased demand
of water by all the users, "water resources" have
become a grave concern in the more advanced coun
tries of the world.
As a result, they are taking
measures to make a complete and correct inventory
of available resources and to ensure at the same
time economy in water use.
Rigorous economy
measures for control of water pollution are also
be?ng taken.
1.8
We have now reached a stage ’There
advance planning is necessary to avoid the misuse
and'non-use of available water resources.
Hot only
we suffer from inadequacy of data in this behalf}
.but there is also a singular lack of coordination
amongst the agencies which execute independent
" "•
projects for irrigation, for industries and for
community needs bot,h urban and rural.
Most
often, the needs of irrigation claim .exclusive
attention while those of domestic and industrial
water supply are relegated to the back ground.
The isolated execution of projects for these
’sererate needs by independent agencies most .often
results in investments out of proportion to the.
?
capacity of the constituent bodies particularly
in regard to domestic and industrial water supplies.
In cases where certain rights are already established,
12
the diversion of even a small quantity of water
from such sources to meet the drinking water
needs of nearby communities is often resented.
Community water supplies have been delayed for
long periods on this score.
Likewise, when large
scale industries are set up either in the public
or private sectors, the provision of wa^er supply
is most often restricted to the population
related to the industry even if large communities
in the neighbourhood are in need of such supplies
for a long’period.
1.9
The Panel, therefore, feels that a compre
hensive programme for conservation of water
resources in the country should be formulated
on the following lines.
1) All existing and potential river
basins in the country must be surveyed in detail to'
find out how best and to what extent they could be
developed.
River gaugings at crucial points should
be arranged over a representative period to draw
correct conclusions on the surface water potentiality
of such basins.
2) An assessment of the water requirement
of all existing and prospective uses in the region
should also be simultaneously made.
3) Information should also be collected
on the capacity of surface waters to assimilate
discharge of man made waste at different points
13
and during different seasons of the year.
4) All methods of conserving surface water
to the maximum by darning up rivers at suitable
roints and by forming lakes should be investigated.
The possibilities of locating diverse industries in
the river basin to effectively utilise the water so
conserved should be examined.
1.10
This work could be taken up by a special
organisation under the CWPC who will pursue their
field activiti-s in close collaboration with the
State Departments concerned with water utilisation
and urban and industrial development.
The programme of field work may be divided
into two broad stages, the first stage to include
major and important river basins, where river gaugings
and similar data are already available, so that
the potentialities of these sources could be evaluated
and made use of in preparing projects in the
ensuing plan periods.
The second stage may include
all the minor rivers and other water resources,
in respect of which data may have to be collected
over a period of years before their potentialities
could be gauged on a correct basis.
Schemes for
utilisation of the resources figuring under the
second stage could be taken up under a long term
plan.
1.11
The assessment of the groundwater resources of
the country should continue to be undertaken by the
14
Groundwater Divisions of the Geological Survey
of India (aided by drilling wherever necessary for
which they may be equipped).
The engineering,
industrial and other departments of the States
and the centre should collaborate with the
Groundwater Divisions of the Geological Survey
of India in the different regions (namely,
Calcutta, Lucknow and Hyderabad) so that the
interests of all users of groundwater may be
kept in view and the appraisal of the groundwater
resources in different areas could be based on
the total programme for the common benefit of
all users in the area.
Co-ordinated programmes
of research should be carried out by all
concerned Departments on soil, evaporation and
transpiration, a's the data gathered, together
.with the data gathered by the Groundwater
Division^ of the Geological Survey of India,
swoilld’.help' evaluate the quantity of groundwater
that could ££ Salvaged and conserved.
Special emphasis should be placed, on
collecting analytical data on the quantity and
quality aspects of the ground water available
from the areas explored together with details
of the'geological formations so that the technique
of developing a supply from such sources and
the treatment measures required could all be
designed suitably for each case.
15
The exploration of ground water resources
can also be divided into two stages, as in the case
of surface water resources.
The first stage will
include the alluvial and sedimentary terrains, which
are by far the most important from the point of
plentiful ground water resources.
The other areas
can be taken under the second stage.
1.12
Both in the case of ground and surface water
exploration, survey, the services of competent
engineers, ground watergeologists, meteriologists ,
soil specialists and water analysts should be utilised
so as to make the data collected fully comprehensive,
realistic and useful;
1.13
It is desirable that the data pertaining to
' the first stage of the survey works in regard to
surface and ground water resources as well as a
preliminary forecast of potentialities of the
areas figuring under the second stage is made
available by the CWPC and the Geological Survey of
India within the course of the next five years.
With the data thus collected, a special agennry
may be set up at the Centre and at .the State
levels for an integrated study of all the material
available and for the formulation of a master
plan for the country's water utilization.
16
2. CONTROL OF .'JA23R POLLUTION
2.1
It has been mentioned in the Introduction
that a three man Committee appointed by the Union
Health Ministry to prepare a draft enactment for
water pollution control has already submitted its
report.
That Committee was composed of the Chairman
of this Panel and two of its other Members, Shri
S. Rajagopal,an and Dr. T.R. Bhaskaran.
The other
Members of this Panel have since taken the opportunity
to study the report of that Committee.
2.2
The Introduction to the draft enactment as
prepared by that Cbmmitteo
deals with the subject
of water pollution control in a comprehensive
manner.
It contains survey of the present situation
in regard to water pollution in thex'country and a
comparative analysis of the incidence of water
pollution and the control measures pursued by
other countries.
The existing legal provisions
have been examined and the pattern of the suggested
enactment has been indicated.
The organizational,
administrative and financial implications of setting
up of the control agencies both at the Central and
State levels to implement a country wide programme
of water pollution .control have been discussed.
second.part of the Committee's report deals with
I
the draft enactment suggested for the purpose.
2.3
In view of the close inter-relationship
The
17
between the water pollution control and water
resources conservation and in the light of what.
has already been stated in Section I of this report,
the Panel feels that it cannot do' better than to
incorporate in this section the introductory portion
of the report as submitted by the three man Committee
referred to above.. It would facilitate a complete
understanding of the subject in the entire field of
water resources conservation and a better appreciation
of t(h-e reforms called for in both the spheres.
2.4
The introductory part of the renort by the
three man Committee would presumably be utilised by
the Union Ministry of Health for preparing a short
preamble to.'the legislation to be brought out to
control water pollution in the country.
The report
the Panel is now presenting has been prenared at the
instance of the Union Health Ministry.
The
reproduction of the introductory part of the report
submitted earlier to the Health Ministry as Section
II of this renort by the Panel would serve a dual
purpose; it would serve to dissiminate information
on the important
ibject of water pollution and its
control to a wider field of the public and also help
in gaining public support for the administrative and
legal reforms which will necessarily have to be
introduced in the coming years.
It would in addition
present a complete picture of the situation to the
Planning Commission.
The relevant material in regard
to water pollution control is accordingly reproduced below.
: 18
2.5
Importance of water resources.
For the developmental plans and National
building activities of a country its natural water
resources form a primary asset.
Their uses are
manifold; for developing domestic water supplies
for communities, for bathing and recreation, for
irrigation and agriculture, for industrial
purposes, for fisheries, for navigation and for
power development.
The same water resources
have to receive the waste discharges from communi
ties, industries and agricultural lands to find
repeated use for similar purposes all along their
courses.
In the interests of the country's
.prosperity, therefore it is essential to maintain
its water resources unimpaired.
2.6
Water pollution as a problem.
Community wastes in the shape of sewage
or sullage contain putrescible organic matter and
pathogenic organisms which cause cholera, typhoid
and other gastro-intestinal diseases.
-Industrial
wastes contain both mineral and organic '
substances including acids, alkalies^ salts, oils
and grease and a variety of poisonous ■. substances.
With the rapid industrialisation of the country
such wastes would also include radioactive materials
which are highly toxic to human, animal, and plant.
life.
In recent years the increasing use of
insecticides and pesticides for agricultural
=
- s 19 ; -
purposes would charge the drainage from such
lands with these poisonous materials.
a
When
body of natural water receives such un
treated wastes from a community, industry
or agricultural land, it adds so much pollutlonal
load to the water causing deterioration in the.
physical, chemical, biological and bacteriological
quality of the entire body of water.
When such
pollution occurs successively at several points
in repeated stretches of the water courses, the
cumulative pollution, to the body of Water
renders it less and less useful for any and
each of the several purposes for which it is
Eventually, such a state
intended to be used.
of affairs might tend to stifle the country’s
developmental activities whichsuch natural
water resources are intended to help.
Water pollution therefore can become a serious
problem unless measures are taken to prevent
it in time.
'
*
2.7
’ ’
!
,
Importance of Water Pollution Control.':
The ill effects of the pollution of
water course's ;by wastes are many: and far
reaching.
It endangers th-e very health of
the nation.
Water pollution by sewage is
largely responsible for the high incidence
of gastro-intestinal diseases prevailing in
the country.
Poisonous substances discharged
— s 20
through industrial wastes make the water dangerous
to .human b.eings, animals and plants.
Excessive
pollution renders the water unsuitable for reuse
as a source for community water supply as the
, cost of purification of such waters may be
prohibitive.
*
.
Pollution also renders the water
•
environment unsuitable for fish culture.
In
consequence the much needed commercial supply of
fish which is an important factor in maintaining
the level of nutrition of the population is
adversely affected.
The putrescible material
...present in the'waste also creates obnoxious
conditions, and spoils the aesthetics of the
environment in which we live.
Apart from damaging the health of the
Nation, water pollution renders the water less
.useful for irrigation and industrial purposes
and for rower development.
The wastes have
a deleterious effect on structures like bridges
and dams and on moving boats, and makes
navigation unpleasant and irksome.
Water pollution
also reduces the value of property adjoining
polluted water courses.
In recent years the rate of
industrialization has been very rapid.
The treat
ment of industrial wastes as and when new
industries sprang up has been absent or haphazard.
Urbanization of the communities has been equally
rapid, but the provision of community water supplies
21
and sewerage facilities have not kept pace with
the needs.
As a result, community wastes and
industrial wastes have been allowed to flow into
the country's natural water resources, increasing
the pollutional load on them without any check
or control.
The reuse of ’such polluted waters
for new community water supplies and new
industries is creating more and more problems.
This growing deterioration of our natural water
resources should be stopped before the problem
should overwhelm us by its extent and magnitude.
A water pollution control programme for the
country can brook no further postponement.
2* 8
Experience in other countries.
Due to their failure to take note of
this problem in time, many of the advanced
countries are now facing avoidable difficulties
in regard to the pollution of their water
resources.
During the early stages of rapid
industrialisation, these countries developed
industries and townships along river valleys and
allowed the industrial and community waters into
the same water courses without proper treatment.
In consequence the waters in these industrial
regions became heavily polluted and the cost of
'curing1 the pollution is-proving to be prohibitive.
As a result of such bitter experience those
countries have initiated a vigorous programme of
22
water pollution control, somewhat belatedly.
There
is no reason why India cannot benefit by the
experience of such countries by forestalling the
problem.
A review of the recent trends in the water
pollution control programmes now in operation in the
more important countries would be useful in planning
a suitable programme for India.
In the U.S.A, the Federal Water Pollution
Control Act of 1948 as amended in 1956
provides
for nation wide nollution control activities under
the United’ States Public Health service.
The Act
recognises State responsibility for control of
pollution and envisages Federal action for providing
coordination, technical and financial assistance to
■
v-'
: States, in all activities designed .to..make the State
programme more effective in all phases.
The pollution
control programme is carried out primarily by the
State Water Pollution Control Boards, wh,ich are
autonomous bodies with adequate statutory powers,
having technical organisations to carry out
investigations and research on water pollution
problems.
•
f1
In the U.K. the control nrog^apime is carried
out by a number of river boards set up by' Minister lai
order under the River Boards Act, England-(1948)
and covers all the river basins in theLeountry.
river boards have adequate statutory powers for
These
23'
•V
making bye-laws and standards applicable to the
reaches of the rivers in the region and for enforcing
them.
Proper control of effluents entering into
the water courses in the basin is ensured by
adopting what is known as the 'consent procedure'
whereby the consent of the Board has to be obtained
for every outlet and discharge of waste waters.
There is also a River Board Association in which
matters of common interest to different river
boards are discussed.
/ there are,
In Germany,/River Basin Authorities which
are somewhat similar to the River Boards of U.K.
control Water Pollution.
These authorities
exercise the dual role of enforcing the pollution
control measures and also treating the Wastes • before they are discha-rged into the rivers.
They
also exercise an overall control on .the quantity
and quality of water flowing through.jthe’ba’siri.
The Federal Law of;’Germany provides for. a uniform
basis in respect of wat-^r pollution control
activities by different authorities and also in
regard to the organisation of the river basin
authorities.
In the U.S.S.R. Vater pollution control is
an integral part of the water utilisation plan and
the State lays down the principles of utilisation
and protection of the water resources.
-: 24 :In 1960, the State Public Health Inspectorate
of the USSR approved instructions regarding; the
protection of water-courses and lakes into which waste
waters containing a combination of harmful substances
are discharged.
In conformity with these instructions,
the maximum permissible amount is determined for eqch
such substance, the approved norm bein«? reduced by
whatever amount of harmful substances with their
own maximum index is to be discharged with waste
waters or is contained in the water of the watercourse
or lake.
A special commission of the State Public Health
Inspectorate of the USSR, in collaboration with the
fishery authorities and with sanitation experts, has
prepared new draft rules for the protection of waters
against pollution by waste.
These rules are a
comprehensive document, comprising requirements for
the prevention of the pollution of waters used for
household and drinking-water supplies, for cultural
and #welfare amenities and also for the fishing industry.
A number of provisions included in the draft., rules
impose stricter requirements concerning the. discharge
of waste into waters.
This' has been made necessary
by the unfavourable conditions now prevailing in many
waters within the Soviet Union.
With the growth of the national economy, the
protection of waters in the US-'-.R is assuming ever
greater importance, affecting the economic interests
25
of the country to a large extent.
The most recent measure of the USSR Government,
focusing attention on the need for a serious
intensification of efforts to protect the country's
water resources from pollution, contamination and
depletion, is the decree issued in 1960 by the
Council of Ministers of the USSR concerning measures
to regulate the use and intensify the protection
of water resources.
’This decree lays down basic rules for the
solution of problems relating to water-pollution
control.
It sets up special authorities responsible
for the use and protection of water resources, with
inspectorates- for -•th-e:-main-’i-iiver basins.itlcalls '' •
upon economic'and Soviet organs and the Soviet public
in general to comply with the regulations for the
protection of water resources’; and it again cortfirms
the obligation of the'State health authorities to
prepare and publi -h requirements and rules on the
basis of which waste can be'discharged: into waters
without danger to public health.
The organs responsible for the use and •
protection of water resources, subordinate to the
Councils of Ministers of the Union Republics,
regulate and coordinate the use and protection of
water resources in the republics; they supervise,
on behalf of the State, the rational utilization of
water resources by enterprises and ensure that
26’
enterprises comply with the water-pollution control
regulations.
These organs have rowers to shut down
any enterprise which does not take action to ensure
that waste waters are'treated and rendered harmless.
The organs responsible for the use and
protection of water resources work in consultation
with public-health, shipping, fishery, municipal and
agricultural organs, always giving priority to the
use of water for household purposes and as a source of
public drinking-water supply.
In October 1960 the Supreme Soviet of the USSR
enacted g law on the protection of natural resources
in the RSFSR, in which the protection of water resources,
which occupies a prominent place, is made obligatory; it
provides basic rules and directives for measures
designed for such protection and assigns responsibility
for the implementation of these measures.
Similar legislation for the protection of natural
resources has been enacted in almost all the Union
republics of the USSR.
2.9 A Survey of the present situation in the Country.
Before Independence, the number of community
.....
■.■■■■■
•
1
water supplies was limited; sewer systems were far loss
in number.
The industrial growth was at a snails' pace
and the few industries which grew up were sparsely
distributed.
Water pollution was not therefore posing
a serious problem then.
In the post independence period
however there has been a phenomenal growth and
concentration of industries, as well as of urban communities.
27
An increasing number of water supplies are also under
implementation,
The provision of sewerage systems
and sewage treatment plants has not however kept pace
with the development of water supplies.
So much so
an increasing amount of untreated sullage is
polluting the water sources.
Likewise, while
industrial expansion received an impetus, the treat
ment of industrial wastes invariably went by default,
and such wastes found entry into the nearest water
courses.
There was also a general lack of awareness
of the cause and effect of water pollution and its
impact on the country5s progress.
As a result, any comprehensive survey of
pollution of rivers has not been attempted yet on a
nation wide basis.
Because of the growing nature
of the problem, a beginning was made in this
direction during the last decade and individual
surveys of crucial reaches of a number of rivers in
the U.P . , Bihar and West Bengal States were carried
out by the All India Institute of Hygiene and Public
Health, Calcutta.
The data collected serve to pin
point the nature, extent and magnitude of the water
pollution problem in rhe eountrv.
ihe results of the
survey show that while there is an appreciable
pollution in restricted reaches of even the big
rivers such as Ganges, Brahmaputra, Godavari, Krishna
and Hooghly, many small rivers such as Gomti in
Lucknow region, the Eastern Jumna Canal, Kali,
Krishna, tTindcn, Kitcha, Gon and Suraya in Uttar Pradesh,
28
Sone, Daha and Damodar in Bihar and West Bengal States
are heavily and extensively polluted by domestic
sewage and industrial effluents from sugar factories$
distilleries, rice mills, tanneries and coal washeries.
Paper and board wastes in Madhya Pradesh and Orissa are
contributing to large scale water pollution.
Sabarmati
in.Gujrat State is heavily polluted by the discharge
of sewage and textile mill effluents from the city of
Ahmedabad.
Instances
of serious river pollution
from industrial wastes are on the increase all over
the country.
The effect of all this is an increasing
damage to the country’s economy in several directions.
•' Fish supplies from these rivers are suffering gradual
diminution.
New water treatment plants have to incur
increased costs on treating the polluted waters from
these rivers.
The pollution from the coal washeries
and the thermal plant in Bihar State are instances on
point.
The polluted waters have also become less
Added to
useful for bathing and recreational purposes.
all this is the ever present danger of sporadic out
bursts of water borne diseases amongst rural communities
who may resort to these polluted river waters for
■their domestic needs.
It is not surprising
,
therefore that there is now a growing popular•demand
for the systematic abatement of water pollution all
over the country.
Existing legal provisions.
2.10
Legislation in regard to water pollution has
been of recent origin even in the more advanced
29
In India no specific legal measures in
countries.
this respect have so far been initiated.
We have
only the general provisions contained in the 'Indian
Penal Code, Criminal procedure code and the State
and local Acts against 'public nuisance1.
Some
sections of the Penal Code, Criminal procedure code
and State and local public health Acts, particularly
in Madras and Bengal, provide police powers against
'Public nuisance' and 'fouling of waters' arising
out of community and trade wastes.
These provisions
have not been .helpful in instituting measures against
water pollution because it is difficult to define
these terms specifically and establish guilt or ' even
Moreover, these provisions are primarily
default.
of a penal nature and are not useful in preventing
pollution,
The Indian Factories Act (Rule 18) confers
some legal powers to tie State Inspectorates of
Factories for ensuring proper treatment of industrial
effluents before disposal and thereby preventing
J
pollution of water by industrial wastes.
However,
such powers have not proved useful in preventing
water pollution in the absence of a professional
agency to assess, guide and advise on the treatment
measures needed in each case.
In 1953, the Government of India appointed
a Committee to draw up a comprehensive Model Public
Health Act.
The draft as prepared by this Committee,
includes some measures which local authorities may
30
adopt for the conservation and protection of water
sources and the prevention of pollution of streams and
lakes.
The Appendix to the draft report, includes
details regardin'’ the methods of treatment of different
types of industrial wastes and indicates certain broad
■principles relating to stream pollution which may be
incorporated by the local or State Authorities in their
Public Health Act.
Many of the States are yet to
pursue action on this Model Public Health Act.
Even
so, water pollution control has now assumed an urgency
and importance which would justify an exclusive
legislation by itself rather than stray provision in
the State Public Health Act.
In 1948 the U.P. Government set up an Effluent
Enquiry Committee to advise on this question.
Based
on their recommendations, the U.P. Government established
itr 1955 an Effluent Board for dealing with this
problem.
The Board is composed of the Director of
Medical and Health Services (as Chairman), the Chief
Inspector of Factories (as Member-Secretary) and the
Director of State Provincial Hygiene Institute, the
Chief Engineer (Public Health) , the Chief Engineer
(Irrigation), the Director of Agriculture, the Medical
Officer-in-Chiarge of Industrial Health, the Industrial
Chemist and two representatives from the Industry, as
Members.
It is obligatory on all factories,in the State
to get their proposals for treatment and disposal of
wastes approved by the Board.
The Board examines each
individual case separately and prescribes treatment of
31
wastes and standards-appropriate to that case.
This
Board has been able to initiate some effective measures
for the control- of water pollution by industrial wastes,
particularly in regard to new factories in the State.
However, in the absence of a comprehensive State and
Central legislation to cover water pollution as a common
subject, much headway could not be made so far.
2.,11 Need for a comprehensive enactment
The urgent need for introducing a comprehensive
enactment for effective control of water pollution
(surface water and ground water) in the country is thus
The new enactment should not only include
self evident.
preventive and penal measures but al so^ provide for
setting up a suitable- administrative machinery
and a technical organisation for effective
implementation.
The penal provisions should not, of
course, act as deterent and stifle industrial development
The emphasis should be laid more on persuasion to secure
abatement of pollution than on the institution legal
proceedings.
The enactment should also fit into the
frame-work of the Indian Constitution.
Health" is — —- ■
primarily a State subject under the Constitution.
It
will be the primary responsibility of the States to
implement and enforce the provisions in the Act, while
the Centre could provide the necessary coordination*
guidance and control in general and take specific part
in inter State matters.
!
Experience in the working ytf a -’^t er^Pdilution
A' Q <
—'
-’ V
Control Programme in the more deVelfbped countries points
05320
-? 32
to certain basic factors applicable- thereto.
They are :
(i) waste disposal and water pollution problems differ
from region.-
to region.
A successful control programme
has, therefore, to be organised on a Regional or State
wise basis,'(ii) Norms.for treatment methods and
receiving waters cannot follow any simple and uniform
pattern because of the . variety ar.:' complexity of the
problem.
Even a Regional agency may have to consider
each case separately and lay down standards appropriate
to each case, (iii) adequate fiscal provisions for the
construction of tTsatmqnt works for" wastes...must be...
ensured in the budgets of.the concerned agencies, if
the pollution control programme is to succeed'; .(iv)
Communities and industries should realise their duties
and responsibilities -and offer effective cooperation.
for the successful working of a Water PollutionControl Programme.
2.12
Pattern of the Suggested Enactment.
• . • f 1
r »
.
In any new enactment to be made on this
behalf, it is thus necessary to establish suitable water
pollution control boards at the Central and State levels.
The Boards shall be autonomous bodies set up under the
Act clothed with ad.equa.te .statutory powers, and their
duties and responsibilities well defined.
The member-
ship or the Board- should be broad based and Include
representatives from different water'users, members
or iegislWiire,-local bodies and experts in the. field
oJf water pollution control.
The
'should be provided
with adequate funds for implementing the prograde, effect 1Vely.
-s 33 :2.13 A Central Board.
The Central Water Pollution Control Board
should have representatives from the concerned
Ministries .and. executive wings of the Central Government,
from. Parliament and local bodies, from the Industrial
Sector.and the State Pollution Control Boards.
Its
functions should■include policy making, laying down of
general (Standards, bye-laws, -precedents and procedures
and review and.-r evision of
such standards from time to
time, carrying out -of special in estigations in regard to
international and-inter Stat e' problems', control guidance
z
and coordination of the .activities of the State Boards,
surveillance and follow up '■programmes in respect of
field.^activities,., arranging. of training programmes,
seminars and refresher courses ,> adjudication on inter-
.State., and international .problems, compilation and
dissemination of statistical- and technical data, and
Pr°moting proper public relations in support of the
entire programme.-' A technicalr'wing should be attached
to the Central Board for it to carry out all these
duties'.satisfactorily and '-to keen effective liaison
with the St-ate -Control Boa’rd's.’
2.14
State Boards.-
1 •
The State Pollution' Control Boards should like
wise. be represented by the State-Ministries a nd Executive
Organs concerned with the programme, and by the
Industrial Sector, by local bodies and the legislature.
The State Boards/will deal with all the facets of the
control programme including field investigations for
34
analysing problems assessing pollution factors, and
advising on the treatment measures, laying down norms
and standards to suit an individual or group of cases 5
surveillance and monitoring work; collection and
compilation of data; control,, supervision ..and guidance
to the local bodies and -industrial agencies on all technical
and administrative problems under the programme; keeping
proper liaison with sister departments and promoting
public relations for the success of the programme; and
the exercise of secretariat, administrative and legal
functions for the enforcement and ■ implement at ion of the
legal provisions,
For carrying out these functions, the State
Board should be assisted by an Executive and Technical
wing; the former with th.e secretariat staff would carry
out all the administrative duties and enforcement
operations, while the -latter will deal with all the
technical aspects of the. nrog-ramme implementation.
The Technical wing is preferably-to be developed as
an integral but independent unit under the State
Public Health Engineering Department equipped with
proper laboratory and other facilities to carry out
field surveys, study stream pollution problems and
advise on specific treatment methods and remedictl
measures in respect of. all the problems dealt with
by the Board.
2.15
The general aim.
’r’ .
The aim of the new enactment will be to
-
bring into force a comprehensive Act which is more
or less self contained in regard' to its objectives,
implementation and enforcement, ’With adequate.
fiscal provisions, and penal measures to ensure
success for the programme.
The existing local
measures for abatment of 'public nuisance' etc.
will have to be amended to bring them in line with
the provisions of the new Act, wherever necessary.
The proposed new Act will -eonnote the
first attempt to initiate effective measures for •
the prevention and control of water pollution(both
surface or ground water ) as a common policy
throughout the country.
The measures suggested
•-
are based on the experiences of other countries with
modifications to suit .our conditions.,. and constitute
a beginning in this new but important field.
These
measures may need further modifications on the ba.s.is
of experience gained in implementing .them, arid a
'
■
~ Ji •
periodical review■would be necessary for this purpose.
2.16
A vital part of the -programme.
'
'//hen a total Vater Pollution Control
Programme for the country has been placed on the ■
statute, the constructive part of the Programme
would imply the installation of treatment plants to
deal with domestic and j.ndustrial wastes.
A
majority of the urban communities are yet to have
-a satifactory water supply system.
All but a few
36
of them lack the amenity of sewerage system.
Industrial
development, however, is growing at a rapid race, faster
than even community water and sswerag ^Systems.
It is a
healthy sign,-however, that the Central and State Govern
ments are keenly alive to the urgent need for expediting
urban water supply and■sanitation projects within the
next io or 15 years.
The creation of Regional Water and
Sewerage Boards in each State recommended in this behalf
by several Expert Committees, has found wide acceptance.
The, early creation of such Regional Water and Sewerage
Boards is essential in order to husband all available
financial resources, and expedite the implementation
of all sanitation projects side by side with water
supply projects.
The successful functioning of the
Regional Water and. Sewerage-Boards or the local bodies,
as the case may be, will depend to a large extent on
the financial self-sufficiency of the projects they
have to implement and the vigorous support and particiration of the State and Central Governments.
The
success of-the Water Pollution Control Programme will,
in its turn, depend much on the effective and rapid
manner in which the National Water Supply and Sanitation
programme is- completed in the coming years.
The
inclusion of adequate treatment, works for'domest ic
wastes must form part of any sewerage system and the
provision of Water Pollution Control measures as contempla
ted would be enforceable only when the local bodies all
over the country arc enabled to treat their wastes
properly and thereby conform to the provisions of the
37
proposed new enactment.on water pollution.
In regard
to the treatment of industrial wastes, the problem may
soon become equally intensive and extensive.
The
enactment of the present statute should enable the
State and the Central Governments to take timely
control over the problem and .enforce a salutary
regulation by stages to prevent the pollution of the
country's natural water resources.
2.17 Financial Implications.
It may perhaps be argn id that as this new
piece of legislation may add to the financial burden
ofthe States without any corresponding income, there
may be hesitation in sponsoring this’legislation.
It should be noted however, that the constitution of
the Central and State Boards will be such that most
of the members are drawn from the officers belonging
to the different Departments, and actual- expenditure .on the Members and their T.A.. will not be significant.
The only significant expenditure would be on behalf
of the secretariat of t he Central and State Boards as
proposed and the cost of the laboratory facilities
and field surveys which may be necessary in order to
decide and advise on the- method.of treatment and
disposal suitable to' each case.
This i s an
v
expenditure obligatory on the 'tates in order, to
enforce salutary regulations and reforms on the
industries a nd to prevent whole-sale pollution of
public water courses and thereby safeguard the interests
of the several water users,
part of the moneys can be
38
recovered by way of consultation fees from the industries
themselves for professional advicewhnre required and
for anlysis of samples and similar services'- for which
fees could be levied.
The actual construction of'
treatment plants is, in any case, the'respon sibillt/
of the local-bodies and the industries ’ concerned, and
involves no financial commitment to the•Ceritral or State
The primary objective of the Boards is only to
Boards.
advise these outside agencies as to how best the moneys
spent on treatment plants could be used to maximum
advantage.
The Central Government could with advantage
earmark specific sums to be utilised in organising
and conducting the training programmes, seminars and
refresher courses,'and in sponsoring research on
any specific problems, of special interest-.
The
manifold advantages res'ulting from a legislation
for Water Pollution Control will thus far outweigh
the likely expenditure entailed by such legislation
even if the question of cost should influence the
passing of a legislation which is so Vital to the
country's economic development and future prosperity.
The Panel s-t-iAy recommends that the Union
2.18
»
.
•
■
V •
. .
’
.It’
Ministry of Health should take immediate steps to
enact this legislation.
-
■
r
;
'
• ;
: 39
Appendix I.
List of places visited and ~he persons
with whom the'"-pailel had- -discussions.^
Places visited
and date.
Officers with whom the panel had d-iscussions
* .* »
’
New Delhi
4.10.61
j
-F >.. • /
Lt. Col. 0 . S. Go'd iwal a
.
i
* •*”
Medical' Officer of the
Hew -Delhi Municipal
Committee.- •
5.10.61
Dr. H.L. Pass! '
Deputy Health Officer of the
Delhi Municipal Corporation.
•
Shri V.S. Rao’
Dy. Director, Central later
.and Power Commission.
Shri S.V.'- Desai
City Engineer of the Bombay
Municipal Corporation.
Shri P.R. Bhide
Executive Engineer •
(planning)-Bombay
Municipal Corporation.
Bombay
18.12.61
Office of Bombay
Municipal Corporation.
19.12.61
Office 'of .
Director .of
Industries.
Dr. M.R. Mandlekar
'Director of Industries.
Officer on Special Duty
Shri Ganpule.
■
J;
\ (Water Supply to Industries).
Dr. V.-v. I(al’e
.
Deputy director of Industries.
Shri D.S, Gadbole
Deputy Director of Engineering
20.12.61. (visit
to Industrial
Area Khopoli,
Bombay State.
Dr. Par^njpe
*r
. •
Shri Sawaliwallah
Shri Legate.
Shri Phir’za’da
5.2.62 Calcutta
’Public Health
Engineering
Department
6.2.62 Howrah
Office of
Municipal
Corpora!ion.
. ..Director of'the Papco.
'Industries -.
Alta-Laboratories
(Tharmaceut ical).
Incharge" of.-Cellulose ruin
industries'. ■
Ass’i^stant to the Manager of
Indian Organic Chemicals.
•
Shri SiK. Maiumdar
Chief Engineer, Public.
Health Engineering Departlent of West Bengal.
Shri N.K. Mukherjee
Chairman of Howrah
Municipality.
Vice Chairman of Howrah
Hunjcipality.
Chief Engineer of Howrah
Municipality.
City Health Officer of
Howrah .Municipality.
Shri S.C. Ghosh
Shri r.R. Mukerjee
Shri B. Muk'erjee
4*
_....... .
-■ ■
..........
*-
5.
7.2.62 Calcutta
Office of
Director of
Industries.
Shri P.C. Malik
Shri Chatter ji
Director of Industries.
Secretarv to D.1.
6.
8.2.62
Office of
Municipal
Corporat ion.
< ‘Calcutta
Shri PiC* Mazugidar
Commissioner of Calcutta
Corporation’.
Chief Engineer -doExecutive Engineer (Design)
-doProject Engineer (Planning)
-doExecutive Engineer Projects
(Water Supply), -doExecutive Engineer Projects
(Drainage).
-doDistrict Engineer-do-
Shri S» Mitra
Shri B. Nandi
Shri D.N» Ghosh
Shri S, Kalhashi
Shri K.»La Dey
Shri S.L. Sinha
7.
Calcutta
Shri S*B, Ray
Additional Development
Commissioner.
8,
4.4.62
Sind.ri ■
(Fert ili zer
Cornoration)
Sh'ri Biiwas
Shri 2.N. Rao i r" .-‘IShri David
Shri S ,R. Pandey
Shri Dujjta
Shri B.Dj Gogate
Sh-ri B.-K,- Chatterji
Shri B.C. Aich
Dy-, Superintendent (Productir
Superintendent, (Main)
Asst. Supdt. (Water Services j
Plant Manager, Sulphate.
Technologist.
Superintending Engineer.
Project Engineer, P & D.
Chief Medical Officer.
9.
■ 5;4;<62
Central Washery
at Jamdobai
Shri BaH, Engineer
Chief Project Engineer,
Tata Iron .& Steel Co.- Ltd.
Chief Mining Engineer.-do--
10. ' 6. 4.. 62
Indian' Iron
Steel C o
Burnnore<
’- •
■
11.
■
'
1:
Raniganj
Bengal Paper
Mills.
Shri K. i, George
Shri B,B. Ghosal
Shri S. Goswami
Deputy General Manager.
D.i.to the General Manager.
Superintending Technical
Economist.
Chemical adviser.
Technical Assistant.
Dr, J»C* Agarwal
Mill Manager.
Shri FaW.A* Lahmeyer
Shri A*Nt Banerjee
Shri. M*S» Doshi
41
12.
H.S.L. Steel
Plant Durgapur
Shri GoVindaswamy
Dr. G.P. Chatterjee
Deputy General Manager
Deputy Chief Engineer.
S.E., Public Health.
Zonal Engineer for
Sewerage Survey.
Public Relations Offic
Asstt. Superintendent,
Coke Oven Plant.
General Foreman.
Chief Metallurgist.
Shri Jagdish Rai
Shri A.C. De
Shri f.A.N. Iyengar
Shri S.S. Banerjee
^hri M.S. Srinivasan
Shri M.K. Sen.
13.
Coke Oven
Plant of West
Bengal Govt.
Durgapur i
Shri J.K. Ghosh
Shri Chakravarthy
Plant Manager.
Resident Manager.
14.
19.7,62
Delhi Canton
ment Board
Office.
Shri V. Krishnaswamy
Shri Singhal
Shri Yadhav
Shri Y.P. Sood
Executive Officer.
Ministry of Food &
Agriculture.
-doAssti. Health Office_r.
Shri T.M. Xavier
Works Manager.
15.
Delhi
Hindus tan
Insecticides.
Position: 2624 (2 views)