networking of rivers sc judgement 27 feb 2012

8/9/2019 Networking of Rivers SC judgement 27 Feb 2012

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REPORTABLE

IN THE SUPREME COURT OF INDIA

CIVIL ORIGINAL JURISDICTIONWRIT PETITION (CIVIL) NO. 512 OF 2002

“IN RE : NETWORKING OF RIVERS

WITH

WRIT PETITION (CIVIL) NO. !!" OF 2002

J U D G M E N T

S#$%$&%' K*$+ J.

1. Nearly ten years back, the petitioner in Writ Petition

(Civil) No. 668 of 2002, a practicin a!vocate, instit"te! the

petition base! on so#e st"!y that there $as a nee! to

conserve $ater an! properly "tili%e the available reso"rces.

&h"s, the present petition has been instit"te! $ith the

follo$in prayers'

a. *ss"e an appropriate $rit or!er or!irection, #ore partic"larly a $rit inthe nat"re of +an!a#"s !irectin therespon!ent no. 1 to take appropriate

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stepsaction to nationali%e all therivers in the co"ntry.

b. *ss"e an appropriate $rit or!er or!irection, #ore partic"larly a $rit inthe nat"re of +an!a#"s, !irectinthe respon!ent No. 1 to takeappropriate stepsaction to inter linkthe rivers in the so"thern penins"lana#ely, -ana, averi, /aiai an! &a#baravani.

c. *ss"e an appropriate $rit or!er or!irection in the nat"re of #an!a#"s!irectin the respon!ents tofor#"late a sche#e $hereby the$ater fro# the $est flo$in riversco"l! be channeli%e! an! e"itably!istrib"te!.

2. &he above !irections $ere so"ht by the petitioner

aainst the Central -overn#ent as $ell as aainst vario"s

tate -overn#ents, for effective #anae#ent of the $ater

reso"rces in the co"ntry by nationali%ation an! interlinkin

of rivers fro# -ana Ca"veri, /aiai&a#baravar#i "p to

Cape "#ari. 3ccor!in to hi#, as early as in 1845, ir

3rth"r Cotton, $ho ha! constr"cte! the -o!avari an!

rishna !a#s, s"este! a plan calle! the 3rth"r Cotton

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che#e7 to link the -ana an! Ca"veri rivers. *n 140, ir

C.P. 9a#as$a#y 3iyar also s"este! an! s"pporte! s"ch

a sche#e. &hereafter, vario"s political lea!ers of the

co"ntry have s"pporte! the ca"se: b"t no s"ch sche#es

have act"ally been i#ple#ente!. *t is the case of the

petitioner that the *ntertate Water ;isp"tes 3ct, 1


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earlier file! $rit petitions before this Co"rt, bein Writ

Petition (C) No. < of 18 an! Writ Petition (C) No. 1< of

1, prayin inter alia for nationali%e! naviation an!

interlinkin of all the rivers in the co"ntry.

4. We #"st notice, to p"t the recor!s straiht, that on

2th epte#ber, 15, a =ench of this Co"rt took suo motu

notice of a $rite"p that ha! appeare! in the Ain!"stan

&i#es ne$spaper, !ate! 18th B"ly, 15, title! And quiet

flows the maili Yamuna” . Notice $as iss"e! to the Central

Poll"tion Control =oar!, +"nicipal Corporation of ;elhi,

*rriation an! Dloo! ;epart#ent of the -overn#ent of *n!ia,

National Capital &erritory of ;elhi an! the ;elhi

3!#inistration. ince then, the $rit petition is bein

contin"o"sly #onitore! by this Co"rt, till !ate. ;"rin the

pen!ency of this $rit petition, *.3. No. 2 ca#e to be file!,

$herein the learne! Amicus Curiae in that case referre! to

the a!!ress of ;r. 3.P.B. 3b!"l ala#, the then Presi!ent of

*n!ia, on the eve of the *n!epen!ence ;ay. &his, inter alia ,

relate! to creatin a net$ork bet$een vario"s rivers in the

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co"ntry, $ith a vie$ to !eal $ith the para!o@ical sit"ation

of floo!s in one part of the co"ntry an! !ro"hts in other

parts. *n other $or!s, it relate! to the interlinkin of rivers

an! takin of other $ater #anae#ent #eas"res. En 16th

epte#ber, 2002, this Co"rt, $hile consi!erin the sai! *.3.,

!irecte! that the application be treate! as an in!epen!ent

$rit petition an! iss"e! notice to the vario"s tate

-overn#ents as $ell as the 3ttorney -eneral for *n!ia an!

passe! the follo$in or!er'

=ase! on the speech of the Presi!ent onthe *n!epen!ence ;ay >ve relatin to thenee! of net$orkin of the rivers beca"seof the para!o@ical pheno#enon of floo!in one part of the co"ntry $hile so#eother parts face !ro"ht at the sa#eti#e, the present application is file!. *t$ill be #ore appropriate to treat to treatit as in!epen!ent P"blic *nterest

?itiation $ith the ca"se title *N 9> 'N>&WE9*N- ED 9*/>9 v. 3#en!e! ca"se title be file! $ithin a$eek.

*ss"e notice ret"rnable on 40th

epte#ber, 2002 to the respon!ents as$ell as to the 3ttorney -eneral.

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erve notice on the stan!in co"nsel ofthe respective tates.

;asti service, in a!!ition, is per#itte!.

5. &his is ho$ *.3. No. 2 in Writ Petition (Civil) No.

2< of 15 $as converte! into Writ Petition (Civil) No.


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Penins"lar 9eion ha! been clai#e! an! it $as also his

contention that the so"thern part $as #ost !ro"ht prone

an! ha! been $itnessin #ore interstate $ater !isp"tes.

&h"s, he ha! file! Writ Petition (Civil) No. 668 of

2002 an! prayers #a!e therein $ere liable to be allo$e!.

. *n the present case, $e are concerne! $ith Writ

Petition (C) No.668 of 2002, Writ Petition (C) No.


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$ater reso"rces in the co"ntry an! ha! fra#e!, for this

p"rpose, the National Water Policy $hich is bein "p!ate!

on a yearly basis. &he National Water Policy seeks to #ake

available $ater s"pply to those areas $hich face shortaes.

&his aspect of the #atter co"l! be effectively !ealt $ith, only

if the vario"s rivers in the co"ntry are linke! an! are

nationali%e!. &his has been a #atter of p"blic !ebate an!

!isc"ssion for a consi!erable ti#e an! still contin"es to be

so, $itho"t sho$in any reflection of ro"n! reality.

. &he +inistry of *rriation, alon $ith the Central

Water Co##ission, ha! for#"late! in the year 180 a

National Perspective Plan (NPP) for opti#"# "tili%ation of

$ater reso"rces in the co"ntry $hich envisae! interbasin

transfer of $ater fro# $aters"rpl"s to $ater!eficit areas.

3part fro# !ivertin $ater fro# rivers $hich are s"rpl"s, to

!eficit areas, the river linkin plan in its "lti#ate stae of

!evelop#ent $ill also enable floo! #o!eration. *t $as

co#prise! of t$o co#ponents' Penins"lar 9ivers

;evelop#ent an! Ai#alayan 9ivers ;evelop#ent. &he first

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involve! #aFor interlinkin of the river syste#s an! the

latter envisae! the constr"ction of storae reservoirs on

the principal trib"taries of rivers -ana an! =rah#ap"tra

in *n!ia, =h"tan an! Nepal. &his $as to help transfer

s"rpl"s flo$s of the eastern trib"taries of the -ana to the

West, apart fro# linkin the #ain =rah#ap"tra an! its

trib"taries $ith the -ana an! +ahana!i rivers. &he

sche#e is !ivi!e! into fo"r #aFor parts'

i)

ii) *nterlinkin of +ahana!i-o!avaririshna

Ca"very rivers an! b"il!in storaes at

potential sites in these basins.

iii) *nterlinkin of West flo$in rivers north of

=o#bay an! so"th of &api.

iv) *nterlinkin of rivers en G Cha#bal.

v) ;iversion of other $est flo$in rivers fro#

erala.

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10. &he petitioners have also #a!e several s"estions

$hich have been appreciate! by the co#petent a"thorities

on consi!eration. *t is e#phasi%e! that the cost is neliible

$hen co#pare! to the potential benefits $hich #ay be

besto$e! on the nation. &he petitioners rely "pon 3rticle

262 of the Constit"tion, rea! alon $ith >ntry 1, ?ist **

an! >ntry


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11. 3s a res"lt an! beca"se of the inaction on the part

of the Central -overn#ent an! the tate -overn#ents, it is

s"b#itte! that rant of the reliefs as praye! for in the $rit

petition $o"l! be in consonance $ith the constit"tional

spirit an! in the larer p"blic interest.

12. &he learne! Amicus Curiae , $ho ha! been p"rs"in

this p"blic ca"se for a n"#ber of years, in f"rtherance to

the re"est of this Co"rt, has also s"b#itte! a !etaile! note

$ith rear! to the backro"n! an! s"##ary of the

procee!ins in these petitions.

14. 3s per the learne! Amicus Curiae , on 15

th

3""st,

2002, the then Presi!ent of *n!ia, ;r. 3PB 3b!"l ala#, in

his a!!ress to the nation on the eve of *n!epen!ence ;ay,

ha! observe! that the nee! of the ho"r $as the creation of a

Water +ission $hich, inter alia , $o"l! look into the

"estion of net$orkin of rivers $ith a vie$ to !eal $ith the

para!o@ical sit"ation of floo!s in one part of the co"ntry

an! !ro"ht in the other. =ase! on this an! as afore

recor!e!, a notice $as iss"e!, on 16th epte#ber, 2002, to

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1. &he stat"s report file! on behalf of the -overn#ent

of *n!ia also sho$e! that a co##ittee of environ#entalists,

social activists an! other e@perts $o"l! be constit"te! to be

involve! in the cons"ltative process of for#"lation an!

e@ec"tion of the entire proFect.

18. &he stat"s reports file!, fro# ti#e to ti#e, have

been consi!ere! by this Co"rt.

1. No$, $e #ay !eal $ith the response of vario"s

tates, as they appear fro# the recor! before "s. &he

response affi!avits have been file! on behalf of ten tates.

Ao$ever, the re#ainin tates have not respon!e!, !espite

the rant of repeate! opport"nities to !o so. While the

tates of 9aFasthan, -"Farat an! &a#il Na!" have

s"pporte! the concept of interlinkin of rivers, the tate of

+a!hya Pra!esh ha! state! that net$orkin of rivers is a

s"bFect fallin "n!er the F"ris!iction of the Central

-overn#ent an! the Central -overn#ent sho"l! consi!er

the #atter. &he

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tates of arnataka, =ihar, P"nFab, 3ssa# an! ikki# have

iven their approval to the concept inprinciple, b"t $ith

!efinite reservations, i.e., a kin! of "alifie! approval,

ar"in that the #atters $ith rear! to the environ#ental

an! financial i#plications, socioecono#ic an! international

aspects, s"ch as interbasin $ater transfer, nee! to be

properly e@a#ine! at the appropriate levels of the

-overn#ent. Dor e@a#ple, all the rivers in =ihar oriinate

fro# Nepal an! it #ay be necessary or !esirable to take

consent of neihbo"rin co"ntries, is a #atter $hich $o"l!

re"ire consi!eration of the appropriate a"thority in the

Central -overn#ent. 3ccor!in to the tate of P"nFab,

interlinkin of rivers sho"l! be starte! only fro# $ater

s"rpl"s tates to tates facin $ater !eficit. &he tates of

3ssa#, ikki# an! erala ha! raise! their protests on the

ro"n!s that they sho"l! have e@cl"sive riht to "se their

$ater reso"rces an! that s"ch transfer sho"l! not affect

any rihts of these tates. &he tate of ikki# $as

concerne! $ith partic"lar reference to tappin of the hy!ro

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po$er potential in the tate an! the tate of erala entirely

obFecte! to lon !istance, interbasin, $ater transfer.

20. &he Hnion of *n!ia file! three !ifferent affi!avits

!ate! 2


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clearances, $hile ref"sin the sa#e in other cases. &he

consent of so#e of the tates ha! not been receive!. &he

e@pecte! financial i#plication as far back as in 2002 $as

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22. &he Hnion of *n!ia an! so#e states have sho$n

their concerns an! their apprehensions abo"t these

proFects, incl"!in "estionin the reliability of $ater

s"pply fro# !istant so"rces, !istrib"tion of $ater iven the

e@istin trib"nal a$ar!s an! the contin"e! availability of

e@istin $ater s"rpl"ses.

24. *n another affi!avit, the Hnion of *n!ia referre! to

the &er#s of 9eference to the &ask Dorce an! the

appoint#ent of its +e#bers. 3ction Plan * $as prepare!,

$hich $as e@pecte! to be i#ple#ente! by 2016. E"t of the

in!epen!ent links to be p"rs"e! for !isc"ssion, the first

$ere the links in the tates of -"Farat, +aharashtra,

Chattisarh: secon!ly, the tates of arnataka, +a!hya

Pra!esh, Httar Pra!esh an! 9aFasthan $ere to be incl"!e!

in !isc"ssions an! thir!ly, the tates of 3n!hra Pra!esh,

&a#il Na!" an! Erissa $ere to be invite! for !isc"ssion.

&he ;etaile! ProFect 9eports (hereafter, ;P97) $ere e@pecte!

to be co#plete! by ;ece#ber, 2006. Ao$ever, fro# the

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#atter internationally, at this stae, $as not a!visable as

the #atter $as pre#at"re. &he NW;3 $as to bein the ;P9

for the first link, i.e., the en=et$a proFect, $hich itself

$as e@pecte! to take 40 #onths ti#e. *n this, the ;P9 has

no$ been prepare!: ho$ever, the i#ple#entation is yet to

bein. We #"st notice that in all other links even the ;P9s

are not rea!y, as of no$. &he !raft +e#oran!"# of

Hn!erstan!in (hereafter, +oH7) ha! been circ"late! for

con!"ct of ;P9 of three #ore Penins"lar links. &he

tan!in Co##ittee of the Parlia#ent on Water 9eso"rces,

(hereafter, the tan!in Co##ittee7), in its report for the

year 20050< has co##ente! that for the p"rpose of

preparation of ;P9s for the en=et$a link an! the Parbati

alisin!hCha#bal link proFects, a s"# of 9s.15 crores ha!

been ear#arke!, o"t of the total 9s.4< crores allocate! for

NW;3. Ao$ever, the tan!in Co##ittee ha! been

constraine! to observe that, tho"h the D9 of the en

=et$a link $as co#plete! in Nove#ber, 16, the proFect

$as still at a nascent stae. 3t the ti#e of the report in

20050


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Pra!esh an! +a!hya Pra!esh, for preparation of ;P9, still

re#aine! to be sine!, on the ro"n! that the tate of Httar

Pra!esh re"ire! #ore $ater to be allocate! to it. &hey

f"rther observe! that, if the +inistry of Water 9eso"rces,

-overn#ent of *n!ia ha! set a ti#e fra#e for finali%ation of

iss"es like this, the precio"s ti#e of eiht years $o"l! not

have been lost. &he #atter still rests at that stae. &o!ay,

tho"h ;P9 has been prepare! for this link alone, no link

proFect has reache! the i#ple#entation stae.

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$ithin a !efinite sche!"le, $o"l! save the nation fro# the

!evastatin ravaes of chronic !ro"hts an! floo!s. &he

reco##en!ations of the tan!in Co##ittee !eal pri#arily

$ith t$o kin!s of tates: the tates havin $ater shortae

an! the tates havin s"rpl"s $ater. till, there $o"l! be a

thir! cateory of tates, $hich $o"l! be co#prise! of those

tates $hich have F"st s"fficient $ater an! therefore, !o not

fall in either the floo!affecte! or the !ro"htaffecte!

cateories of tates. &he role of s"ch tates #ay not be

very proFectrelate!: b"t, their consentconc"rrence is

nee!e! for co#plete i#ple#entation of the prora##e.

&heir role is relevant as so#e canal proFects, linkin

!ifferent rivers, #ay pass thro"h s"ch tates. ="t as

alrea!y notice!, e@cept one, no other ;P9 has so far been

finali%e! an! in fact, none p"t into i#ple#entation. &h"s,

this "estion $o"l! re#ain open an! has to be e@a#ine! at

the appropriate stae by the co#petent for"#.

P,-'%/,& , S%$% R',% : 3

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26. ;ifferent tat"s 9eports have been file! in this

case. &he last of the tat"s 9eports have been file! by the

Hnion of *n!ia on 18th +arch, 2011. *t has been pointe! o"t

that the NW;3, $hich $as to co#plete the task relatin to

preparation of D9s an! ;P9s of link proFects, has co#plete!

208 preli#inary $aterbalance st"!y of basins, s"bbasins

an! !iversion points, 5 toposheets an! storae capacity

st"!ies of reservoirs, 4 toposheet st"!ies of link

alin#ents an! 42 prefeasibility reports of links, to$ar!s

the i#ple#entation of interlinkin of rivers in the co"ntry.

=ase! on these st"!ies, this aency i!entifie! 40 links (16

"n!er the penins"lar river !evelop#ent co#ponent an! 15

"n!er the Ai#alayan river !evelop#ent co#ponent) for

preparation of D9s. &he process of consens"s b"il!in is

onoin, in rear! to the feasibility of i#ple#entin other

interlinkin proFects. &hese reports have sho$n that a

sinificant effort an! atte#pts have been #a!e an! the

"n"estionable benefits that $o"l! accr"e on the

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i#ple#entation of the interlinkin proFects $ill be to benefit

the co"ntry at lare. Ene aspect that nee!s to be notice! is

that, till to!ay, no #inor or #aFor proFect has been act"ally

i#ple#ente! at the ro"n! level !espite the fact that this

case has been pen!in before this Co"rt for #ore than ten

years. Enly the ;P9 of the en=et$a link has been

prepare! an! its i#ple#entation is a$aitin the approval of

the tate -overn#ents as $ell as the allocation of f"n!s,

even to bein the $ork. &his !oes not speak $ell of the

!esire on the part of any of the concerne! -overn#ents to

i#ple#ent these proFects, !espite the fact that there is

"nani#ity of vie$s a#on all that this proFect is in the

national interest.

2. &he Co##ittee of >nviron#entalists, ocial

cientists an! other >@perts on interlinkin of rivers, ha!

#et after the s"b#ission of the tat"s 9eport !ate!


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links $ere co#plete!, i.e., the ar!aIa#"na link an!

-haraIa#"na ?ink. &he fiel! s"rvey an! investiation for

one ;a# on the so"thern trib"taries of the -ana link,

$as still in proress. &he +inistry of >nviron#ent an!

Dorests ha! ref"se! per#ission for s"rvey an! investiation

of the +anasankosh&ista-ana link, b"t the toposheet

st"!y for the alternative Boiopa&istaDarakka link has

been co#plete!. *n the Penins"lar reion, the proFects

relatin to =e!ti/ara!a an! NetravatiAe#avati&api are

a$aitin

arnataka -overn#ent7s consent. *n NetravatiAe#vati

&api link, the arnataka -overn#ent has ref"se! to

consent even to the preparation of D9 "ntil !ecision of

relate! cases, pen!in in the Co"rts.

28. *n the ;ha!"n !a#, relatin to the en=et$a link,

t$o po$er ho"ses an! a link canal $ill be taken "p in Phase

* an! the =et$a basin $ill be co#plete! in Phase**. Hpper

=et$a "b=asin $ill receive priority co#pletion an! #inor

proFects are propose! to be co#plete! first. Phase** $ill be

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co##ence! after s"rvey an! investiation. Ao$ever, this

proFect is still at the s"rvey an! plannin stae an! even

co#prehensive clearances, fro# the Httar Pra!esh

-overn#ent, have not been receive!. &he tate of 9aFasthan

ref"ses to consi!er the +oH for another priority link,

Parbatialisin!hCha#bal, "ntil the "p!ation of its

hy!roloy proFect.

2. i#ilarly, there are other proFects $here p"blic

hin!rances are ca"se! aainst carryin o"t of s"rvey an!

investiation. *n the Par&apiNar#a!a an! ;a#anana

PinFal links, resi!ents have sho$n concern abo"t the e@tent

of lan! to be s"b#ere! on the constr"ction of the propose!

!a#. *n response, the tate -overn#ents of -"Farat an!

+aharashtra have set "p Co##ittees to take "p the

#atters $ith the panchayats an! to co##ence the proFects.

40. &he NW;3 ha! also, in the co"rse of fra#in of its

policies, propose! intrastate links. >@cept for si@ tates

an! fo"r Hnion &erritories, all other tates an! Hnion

&erritories have interest in these intratate links. &here

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are eiht interlinkin proFects $hich are "n!er revie$ by

!ifferent tate a"thorities. Ao$ever, the !etails of the

!iverence bet$een the tate -overn#ents are not clearly

spelt o"t, even as of no$.

41. 3n a!!itional st"!y $as "n!ertaken by the National

Co"ncil for 3pplie! >cono#ic 9esearch (hereafter, NC3>97)

an! the revise! final report, p"blishe! in 3pril 2008,

assesse! the econo#ic i#pact of the rivers interlinkin

prora# an! s"este! an invest#ent roll o"t plan, i.e., a

practical i#ple#entation sche!"le, for the sa#e. 3 copy of

this report $as s"b#itte! in the year 2011, before this

Co"rt.

42. 3s alrea!y notice!, the &ask Dorce $as constit"te!

by the Central -overn#ent for interlinkin of river proFects

in ;ece#ber 2002. *t s"b#itte! its 3ction Plans * an! ** for

i#ple#entation of the proFect an! also finali%e! the ter#s of

reference for the p"rposes of the ;P9s. 3ction Plan *,

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s"b#itte! in 3pril 2004, envisaes co#pletion of 40 D9s by

the a"thorities by ;ece#ber 200


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o"t these proFects #ore effectively an! $ith reater

sensitivity.

E,&,*/ A'% :

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48. 3s alrea!y notice!, the NC3>9 ha! been assine!

the $ork of assessin the econo#ic i#pact of river

interlinkin prora##es, $hich in t"rn, s"este! an

invest#ent rollo"t plan for the sa#e. &he report of the

NC3>9 $as prepare! in 3pril, 2008. &his report consi!ers

vario"s financial aspects an! the i#pact of vario"s river

interlinkin proFects in *n!ia. &hey point o"t that after

in!epen!ence, irriation $as vie$e! as infrastr"ct"re for

aric"lt"ral !evelop#ent rather than as a co##ercial

enterprise. *n 184, the Nitin ;esai Co##ittee for$ar!e!

the i!ea of *nternal 9ate of 9et"rn (hereinafter referre! to as

*997), s"estin that proFects sho"l! nor#ally earn a

#ini#"# *99 of per cent. Ao$ever, for !ro"htprone

an! hilly areas an! in areas $ith only < per cent of

!epen!able flo$s

in the basin, a lo$er *99 of per cent $as reco##en!e!.

"ccessive Dinance Co##issions also stresse! on recovery

of a certain percentae of the capital invest#ent apart fro#

$orkin e@penses. &he >leventh Dinance Co##ission has

reconi%e! that this $o"l! have to be !one in a ra!"al

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#anner. 9eceipts sho"l! cover not only #aintenance

e@pen!it"re b"t also leave so#e s"rpl"s as ret"rn on the

capital investe!.

4. &his NC3>9 report, $ith so#e sinificance, notice!

that "ntil 200405, it $as only in fo"r years that the

econo#y re$ at #ore than 8 per cent per ann"#. >ach of

these years coinci!e! $ith very hih rate of ro$th in the

aric"lt"ral sector. *n contrast, in!"stry an! services

sectors have, at best, p"lle! "p the -ross ;o#estic Pro!"ct

(-;P) ro$th to .4 per cent per ann"# $hen there $as no

sinificant contrib"tion fro# the aric"lt"ral sector. &he

report clearly opines that interlinkin of river proFects $ill

prove fr"itf"l for the nation as a $hole an! $o"l! serve a

reater p"rpose by allo$in hiher ret"rns fro# the

aric"lt"ral sector for the benefit of the entire econo#y.

&his $o"l! also res"lt in provi!in of varie! benefits like

control of floo!s, provi!in $ater to !ro"htprone tates,

provi!in $ater to a larer part of aric"lt"ral lan! an!

even po$er eneration. =esi!es ann"rin to the benefit of

31


32/64

the co"ntry, it $ill also help the co"ntries like Nepal etc.,

th"s "pliftin *n!ia7s international role. *#portantly, they

also point o"t to a very i#portant facet of interlinkin of

rivers, i.e., it #ay res"lt in re!"ction of so#e !iseases !"e

to the s"pply of safe !rinkin $ater an! th"s serve a reater

p"rpose for h"#anity.

50. &he =hakra !a# has also been cite! as an e@a#ple

in this report as havin enable! the tates of P"nFab an!

Aaryana to reister faster ro$th as co#pare! to the rest of

the co"ntry. &his proFect provi!e! an a!!itional irriate!

area to the e@tent of 6.8 #illion hectares over 4< years.

*ncrease! irriation intensity le! to increase! "sae of Aih

Iiel!in /ariety (AI/) see!s $hich at present constit"te

#ore than 0 per cent of the area "n!er $heat an! 80 per

cent of area "n!er pa!!y c"ltivation. &he reion "ses so#e

of the #ost a!vance! aric"lt"ral technoloies in *n!ia.

NC3>9, $hile !epictin the poverty ratio visJvis these

tates an! the other tates all over *n!ia, has provi!e! the

follo$in tables'

32


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S%$%' R$4 U$& A4

4

A

'$

145 100 145 100 145 1

00

P"nFab 28.21 6.4< 2.6 9 9eport also states that the link canals have both

short an! lon ter# i#pacts on the econo#y. hort ter#

i#pact of link canals is in the for# of increase! e#ploy#ent

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opport"nities an! the ro$th of the services sector. *n the

#e!i"# to lon ter#, the #aFor i#pact of link canals is

thro"h increase! an! ass"re! irriation. 3ltho"h the

#aFor an! !irect ainers fro# the interlinkin of rivers (*?9)

prora##e $ill be aric"lt"re an! aric"lt"re!epen!ant

ho"sehol!s, the entire econo#y $ill benefit beca"se of

increase! aric"lt"ral pro!"ction an! other benefits.

54. &he 9eport of the NC3>9 has pointe! o"t vario"s

benefits of rivers interlinkin prora##e at the tate an!

National levels. Ao$ever, $hen co#in to the financial

aspect of the prora##e, t$o concepts are of reat

relevance' firstly, the invest#ent strain an! secon!ly, the

scope of financial invest#ent an! its reco"p#ent.

Pri#arily, it is clear fro# the recor!s before "s that this is a

prora##eproFect on $hich the nation an! the tates

sho"l! have a rational b"t liberal approach for financial

invest#ent. 9eferrin to the financial strain, the NC3>9

9eport proFects t$o sets of invest#ent rollo"t plan. 3t the

start of the prora##e, invest#ent $o"l! be s#all, b"t

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$o"l! increase ra!"ally peakin in the year 20112012. *t

$ill then start fallin. *nvest#ent rollo"t fro# the year

2008200 to 2015201< $ill have consi!erable strain on

the Central -overn#ent finances, especially after the

passae of Discal 9esponsibility an! ="!et +anae#ent

9"les (D9=+9). &he -overn#ent is no$ co##itte! to

re!"cin fiscal !eficit by 0.4 percentae points of -;P every

year an! $as to re!"ce the fiscal !eficit !o$n to 4 per cent

of -;P by the fiscal year 2002008. &he D9=+9 also p"t

a restriction on -overn#ent borro$ins. *n each

s"bse"ent financial year, the li#it on borro$ins of per

cent of -;P $as to proressively re!"ce! by at least 1

percentae point of -;P, a co##it#ent $hich is to be

a!here! to by all -overn#ents. &he invest#ent plan

prepare! by the NC3>9 $as inten!e! to help in clearin

!o"bts in the #in!s of the people an! opponents of the

prora##e that invest#ent is not oin to take place in a

sinle or co"ple of years, b"t over a perio! of at least ten

years. ince the i#pact analysis "n!ertaken by the

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NC3>9 ass"#es that the *nterlinkin of 9ivers (*?9)

prora##e is entirely finance! by the Central -overn#ent,

a loner rollo"t plan $o"l! also help in re!"cin the i#pact

on p"blic finances.

55. &he NC3>9 has also s"este! chanes $hich are

necessary for the effective i#ple#entation of the river

net$orkin prora##e. Inter alia , it incl"!es the pricin of

irriation benefits an! i#prove#ent in the "ality of service.

*t $ill be "sef"l to notice at this stae, these s"este!

chanes ter#e! as Chanes necessary7 $hich are as "n!er'

3 revision of $ater rates is necessary inthe interest of efficiency. Ao$ever, itsho"l! o han! in han! $ithi#prove#ent in the "ality of service(-overn#ent of *n!ia 12). pecificreco##en!ations $ere #a!e by theCo##ittee on Pricin of *rriation Water

(-overn#ent of *n!ia, 12) $ith rear!sto pricin'

1. Water rates are a for#

of "ser chares, an!

not a ta@. Hsers of

p"blic irriation #"st

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#eet the cost of the

irriation service.

2. 3s irriation is one of

the key inp"ts si#ilar

to see!s an! fertili%er,

its pricin sho"l! be

a!!resse! in the first

step.

4. Hn!erpricin of

irriation is #ainly

responsible for the

5. !eterioratin "ality of

irriation services. 3

revision of $ater rates

is necessary in the

interest of efficiency.

Ao$ever, it sho"l! o

han! in han! $ithi#prove#ent in the

"ality of service.


38/64

. 3verain of rates by

reion an!or

cateories of proFects

is !esirable.Cateorisation co"l!

be'

#aFor an! #e!i"# storae

syste#,

#aFor an! #e!i"# proFects

base! e@cl"sively on

barraes!iversion $orks,

#inor s"rface irriation

$orks,

lift irriation canals, an!

lift irriation fro#

ro"n!$ater.

8. ;istinction of rates in

ter#s of tail an! hea!

reaches of a syste#,

soil "ality, an! other

criteria for rate

!eter#ination sho"l!

be approache! $ith

ca"tion !"e to

co#ple@ities involve!

$ith it.

.

10.Water rates sho"l! be

applie! on t$opart

tariff. 3ll lan!s in

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39/64

co##an! area sho"l!

pay a flat ann"al fee

on a per hectare basis

for #e#bership of thesyste# an! a variable

fee linke! to the act"al

e@tent of service

(vol"#e or area) "se!

by each #e#ber.

11.&he #ove to f"ll

fle!e! vol"#etric

pricin cannot be

intro!"ce!

i##e!iately. &he

propose!

rationali%ation of $ater

pricin $ill have to be

acco#plishe! in three

phases.

12.*n the first phase,

rationali%ation an!

si#plification of the

e@istin syste# of

assess#ent (base! on

crop$ise irriate!area on an in!ivi!"al

basis) to a syste# of

seasonspecific areas

rates sho"l! be taken

"p. &he level of cost

recovery to be ai#e!

!"rin the first phase

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sho"l! at least cover

EG+ costs an! 1 per

cent interest on capital

e#ploye!. &heirriate! area "n!er a

crop $hich sprea!s

over to #ore than one

season sho"l! be

chare! at the rates

applicable to !ifferent

seasons. Ao$ever, in

each season,!istinction sho"l! be

#a!e

14.bet$een pa!!y,

s"arcane, an!

perennial crops.

15.*n the secon! phase,

the ai# sho"l! be on

vol"#etric #eas"re for

irriation $ater

charin.

1


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Ectober, 12. *t reco##en!e! that theirriation $ater rates sho"l! cover the f"llann"al E G + cost in phases in the ne@tfive years. &hese reco##en!ations an!the /ai!yanathan Co##ittee 9eport$ere, in Debr"ary 1


42/64

9ehabilitation Policy as an! $hen it etsfinali%e!.

59 also s"ests that after

co#pletion of the linkin of rivers prora##e, the !ifferent

river links sho"l! be #aintaine! by separate river basin

orani%ations, $hich $o"l! all be f"nctionin "n!er the

!irect control of the Central Water Co##ission or s"ch

other appropriate central bo!y.

56. *n the s"##in "p of its 9eport, the NC3>9 has

state! that $ater is essential for pro!"ction of foo!,

econo#ic ro$th, health an! s"pport to environ#ent. *ts

#ain contrib"tion to econo#ic $ellbein is thro"h its "se

of aric"lt"re to i#prove foo! sec"rity. Water is essential to

increase aric"lt"ral pro!"ctivity "n!er #o!ern technoloy.

Nearly 65 per cent of the pop"lation in r"ral area an! 5 per

cent in "rban area !epen!s on aric"lt"re as their principal

so"rce of inco#e. &he analysis carrie! o"t in the tate

sho$s that the *?9 prora##e has the potential to increase

the ro$th rate of aric"lt"re, $hich !ecline! fro# 5.5 per

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43/64

cent in 180s to 4.0 per cent in 10s an! $hich is still

s"sceptible to the vaaries of rainfall. *n or!er to p"t o"r

econo#y on the hih ro$th path an! i#prove the "ality

for life of people in the r"ral areas, a #i@e! policy of both

increase! availability of irriation an! increasin nonfar#

activity is re"ire!.

P/&/4' A4/'6:

5. Dro# the above narrate! facts, state!

reco##en!ations an! principles, it is clear that pri#arily

there is "nani#ity bet$een all concerne! a"thorities

incl"!in the Centre an! a #aFority of the tate

-overn#ents, $ith the e@ception of one or t$o, that

i#ple#entation of river linkin $ill be very beneficial. *n

fact, the e@pert opinions convincinly !ispel all other

i#pressions. &here shall be reater ro$th in aric"lt"ral

an! allie! sectors, prosperity an! sti#"l"s to the econo#y

potentially ca"sin increase in per capita inco#e, in

a!!ition to the short an! lon ter# benefits likely to accr"e

by s"ch i#ple#entation. &hese $o"l! accr"e if the e@pert

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44/64

reco##en!ations are i#ple#ente! properly an! $ithin a

ti#efra#e. &hen there shall be har!ly any financial strain

on the econo#y. En the contrary, s"ch i#ple#entation

$o"l! help a!vance#ent of *n!ia7s -;P an! brin reater

$ealth an! prosperity to the nation as a $hole. =esi!es

act"al benefits accr"in to the co##on #an, the

-overn#ents also benefit fro# the !efinite possibility of

savin the tates fro# !ro"ht on the one han! an! floo!s

on the other. &his proFect, $hen it beco#es a reality, $ill

provi!e i##eas"rable benefits. We see no reason as to $hy

the -overn#ents sho"l! not take appropriate an! ti#ely

interest in the e@ec"tion of this proFect, partic"larly $hen,

in the vario"s affi!avits file! by the Central an! the tate

-overn#ents, it has been affir#e! that the overn#ents are

very keen to i#ple#ent this proFect $ith reat sincerity an!

effectiveness.

58. &he tates of 9aFasthan, -"Farat, &a#il Na!" have

f"lly s"pporte! the concept. +a!hya Pra!esh has also

s"pporte! the che#e, b"t believes that it #"st be

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45/64

i#ple#ente! by the Central -overn#ent. &he tates of

arnataka, =ihar, P"nFab an! ikki# have iven so#e

"alifie! approvals. &heir #ain concern is, $ith rear! to

inter basin transfer, $hich #"st involve quid pro quo, as

$ith any other reso"rces interlinkin #"st be fro# $ater

s"rpl"s to $ater !eficit tates an! in rear! to

environ#ental an! financial i#plications. o#e of the

other tates are not connecte! $ith these proFects as they

have no participation in interlinkin of rivers. &he tate of

erala has proteste! to so#e e@tent, to the lon !istance

inter basin $ater transfer on the basis that the tate nee!s

$ater to s"pply their intricate net$ork of nat"ral an! #an

#a!e channels.

5. *t is also the case of the tate of erala that their

rivers are #onsoonfe! an! not perennial in nat"re,

therefore, erala e@periences severe $ater scarcity !"rin

s"##er or off#onsoon #onths.

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46/64

"itable 3pportion#ent. *t also e@plaine! that $hen

46


47/64

!eter#inin $hat a reasonable an! e"itable share is, the

factors $hich sho"l! be taken into consi!eration. *n that

behalf, it specifically referre! to aree#ents, F"!icial

!ecisions, a$ar!s an! c"sto#s that alrea!y are in place.

D"rther#ore, relative econo#ic an! social nee!s of

intereste! states, vol"#e of strea# an! its "ses, lan! not

$atere! $ere other relevant consi!erations. &h"s, it $ill be

for the e@pert bo!ies alone to e@a#ine on s"ch iss"es an!

their i#pact on the proFect.


48/64


49/64

the Parlia#ent can reserve to itself, the po$er to o"st the

F"ris!iction of the co"rts, incl"!in the hihest Co"rt of the

lan!, in relation to a $ater !isp"te as state! "n!er this

3rticle. &he F"ris!iction of the Co"rt $ill be o"ste! only

$ith rear! to the a!F"!ication of the !isp"te an! not all

#atters inci!ental thereto. Dor e@a#ple, the "pre#e

Co"rt can certainly !irect the Central -overn#ent to f"lfill

its stat"tory obliation "n!er ection 5 of the 3ct, $hich is

#an!atory, $itho"t !eci!in any $ater !isp"te bet$een the

tates. Kee ' Tamil Nadu Cauery Neerppasana

!ilaiporul"al !iasayi"al Nala #rimai $adhu"appu %an"am

. #nion of India & 'rs., 3*9 10 C 1416L.


50/64

&rib"nal an! $hich are o"tsi!e the p"rvie$ of the co"rts.

Ence a specific a!F"!icatory #echanis# is create!, that

#achinery co#es into operation $ith the creation of the

&rib"nal an! probably, then alone $ill the Co"rt7s

F"ris!iction be o"ste!.

ntry 1 relates to $ater,

that is to say, $ater s"pplies, irriation an! canals,

!rainae an! e#bank#ents, $ater storae an! $ater

po$er, s"bFect to the provisions of >ntry


51/64

3ric"lt"re is aain a tate s"bFect. &he Conc"rrent ?ist

(?ist ***) !oes not contain any entry in rear! to $ater an!

aric"lt"re, as s"ch.

ntry 52 of ?ist *** is the la$ relatin to ac"isition

an! re"isition of property by the Hnion an! the tate

Parlia#ents. &he res"lt is that, in relation to ac"isition,

the Centre an! the tate, both, have po$er to leislate.

>ntry 20 of ?ist *** !eals $ith econo#ic an! social plannin.

&h"s, $ith the ai! of the resi!"al po$ers "n!er >ntry ,

?ist *, the Hnion Parlia#ent ets a very $i!e fiel! of

leislation, relatable to vario"s s"bFects.

ntry. Whereas the #an!ate of the latter is to provi!e a

#achinery for the settle#ent of !isp"tes, the for#er is an

3ct to establish =oar!s for the re"lation an! !evelop#ent

of intertate river basins, thro"h a!vice an! coor!ination,

51


52/64

an! thereby to re!"ce the friction a#onst the concerne!

tates.


53/64

referre! to &rib"nal, $o"l! not have any #anner of

application. &he test of #aintainability of a leal action

initiate! by a tate in a Co"rt $o"l! th"s be, $hether the

iss"es raise! therein are referable to a &rib"nal for

a!F"!ication of the #anner of "se, !istrib"tion an! control

of $ater.

61. D"rther, this Co"rt $hile !eclinin to iss"e a

mandamus !irectin the tates of arnataka, 3n!hra

Pra!esh an! +aharashtra to constit"te a co##on &rib"nal,

hel!'

168. MM*t is settle! la$ that s"ch a!irection cannot possibly be rante! soas to co#pel an a"thority to e@ercise apo$er $hich has a s"bstantial ele#ent of!iscretion. *n any event the #an!a#"s toe@ercise a po$er $hich is leislative incharacter cannot be iss"e! an! * a# inf"ll aree#ent $ith the s"b#ission of +r.olicitor -eneral on this score as $ell. 3t

best it $o"l! only be an iss"e of oo!overnance b"t that by itself $o"l! not#ean an! i#ply that the Hnion-overn#ent has e@ec"tive po$er even toforce a settle#ent "pon the tate.

53


54/64

62. &he above state! principles clearly sho$ that a

reater ele#ent of #"t"ality an! consens"s nee!s to be

b"ilt bet$een the tates an! the Centre on the one han!,

an! the tates inter se on the other. *t $ill be very !iffic"lt

for the Co"rts to "n!ertake s"ch an e@ercise $ithin the

li#ite! scope of its po$er of F"!icial revie$ an! even on the

basis of e@pan!e! principles of P"blic *nterest ?itiation. 3

P"blic *nterest ?itiation before this Co"rt has to fall $ithin

the conto"rs of constit"tional la$, as no F"ris!iction is

$i!er than this Co"rt7s constit"tional F"ris!iction "n!er

3rticle 42 of the Constit"tion. &he Co"rt can har!ly take

"nto itself tasks of #akin of a policy !ecision or plannin

for the co"ntry or !eter#inin econo#ic factors or other

cr"cial aspects like nee! for ac"isition an! constr"ction of

river linkin channels "n!er that prora#. &he Co"rt is not

e"ippe! to take s"ch e@pert !ecisions an! they essentially

sho"l! be left for the Central -overn#ent an! the

concerne! tate. "ch an atte#pt by the Co"rt #ay

a#o"nt to the Co"rt sittin in F"!#ent over the opinions of

the e@perts in the respective fiel!s, $itho"t any tools an!

54


55/64

e@pertise at its !isposal. &he re"ire#ents in the present

case have !ifferent !i#ensions. &he plannin, ac"isition,

financin, pricin, civil constr"ction, environ#ental iss"es

involve! are policy !ecisions affectin the leislative

co#petence an! $o"l! s"arely fall in the !o#ain of the

-overn#ent of tates an! Centre. We certainly sho"l! not

be "n!erstoo! to even i#ply that the propose! proFects of

interlinkin of rivers sho"l! not be co#plete!.

64. We $o"l! reco##en!, $ith all the F"!icial a"thority

at o"r co##an!, that these proFects are in the national

interest, as is the "nani#o"s vie$ of all e@perts, #ost tate

-overn#ents an! partic"larly, the Central -overn#ent.

="t this Co"rt #ay not be a very appropriate for"# for

plannin an! i#ple#entation of s"ch a prora##e havin

$i!e national !i#ensions an! ra#ifications. *t $ill not only

be !esirable, b"t also inevitable that an appropriate bo!y

sho"l! be create! to plan, constr"ct an! i#ple#ent this

inter linkin of rivers prora# for the benefit of the nation

as a $hole.

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56/64

65. 9eali%in o"r li#itations, $e $o"l! finally !ispose of

this P"blic *nterest ?itiation $ith the follo$in !irections'

(*) We !irect the Hnion of *n!ia an! partic"larly the

+inistry of Water 9eso"rces, -overn#ent of *n!ia, to

forth$ith constit"te a Co##ittee to be calle! a pecial

Co##ittee for *nterlinkin of 9ivers7 (hereinafter

referre! as the Co##ittee7) of $hich, the follo$in

shall be the +e#bers'

(a) &he Aon7ble +inister for Water 9eso"rces.

(b) ecretary, +inistry for Water 9eso"rces.

(c) ecretary, +inistry of >nviron#ent an! Dorests.

(!) Chair#an, Central Water Co##ission.

(e) +e#berecretary, National Water ;evelop#ent

3"thority.

(f) Do"r e@perts to be no#inate!, one each fro# the

follo$in +inistriesbo!ies'

(i) Ene >@pert fro# the +inistry of Water

9eso"rces

(ii) Ene >@pert fro# the +inistry of Dinance

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57/64

(iii) Ene >@pert fro# the Plannin Co##ission

(iv) Ene >@pert fro# the +inistry of >nviron#ent

G Dorests.

() +inister for Water an!or *rriation fro# each of

the conc"rrin tates, $ith the Principal

ecretary of the concerne! ;epart#ent of the

sa#e tate.

(h) &he Chief ecretary or his no#inee not belo$ the

rank of the Principal ecretary of the concerne!

;epart#ent in case of any other tate involve!

!irectly or in!irectly in the $ater linkin river

proFect.

(i) &$o social activists to be no#inate! by each of

the concerne! +inistries.

(F) +r. 9anFit "#ar (Amicus Curiae*.

(**) &he Co##ittee shall #eet, at least, once in t$o

#onths an! shall #aintain recor!s of its !isc"ssion

an! the +in"tes.

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58/64

(***) *n the absence of any person fro# s"ch #eetin,

irrespective of hisher stat"s, the #eetin shall not be

a!Fo"rne!. *f the Aon7ble +inister for Water 9eso"rces

is not available, the ecretary, +inistry of Water 9eso"rces,

-overn#ent of *n!ia, shall presi!e over the +eetin.

(*/) &he Co##ittee $o"l! be entitle! to constit"te s"ch

s"bco##ittees, as it #ay !ee# necessary for the

p"rposes of carryin on the obFects of the *nter?inkin

of 9iver Prora#, on s"ch ter#s an! con!itions as it

#ay !ee# proper.

(/) &he Co##ittee shall s"b#it a biann"al report to the

Cabinet of the -overn#ent of *n!ia placin before it

the stat"sc"#proress report as $ell as all the

!ecisions re"ire! to be taken in relation to all #atters

co##"nicate! there$ith. &he Cabinet shall take all

final an! appropriate !ecisions, in the interest of the

co"ntries as e@pe!itio"sly as possible an! preferably

$ithin thirty !ays fro# the !ate the #atters are first

place! before it for consi!eration.

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59/64

(/*) 3ll the reports of the e@pert bo!ies as $ell as the stat"s

reports file! before this Co"rt !"rin the pen!ency of

this petition, shall be place! before the Co##ittee for

its consi!eration. Hpon !"e analysis of the 9eports an!

e@pert opinions, the Co##ittee shall prepare its plans

for i#ple#entation of the proFect.

(/**) &he plans so prepare! shall have !ifferent phases,

!irectly relatable to the plannin, i#ple#entation,

constr"ction, e@ec"tion an! co#pletion of the proFect.

(/***) We are infor#e! that lare s"#s have been spent on

preparation of initial an! !etaile! proFect reports of the

proFect en=et$a ProFect7. &he ;P9 is no$ rea!y.

&he tates of +a!hya Pra!esh an! Httar Pra!esh an!

also the Central -overn#ent ha! alrea!y iven their

approval an! consent. &he clarifications so"ht $ill be

!isc"sse! by the Co##ittee. We $o"l! !irect the

Co##ittee to take "p this proFect for i#ple#entation

at the first instance itself.

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(*) eepin in vie$ the e@pert reports, $e have no

hesitation in observin an! !irectin that ti#e is a

very #aterial factor in the effective e@ec"tion of the

*nterlinkin of 9ivers proFect. 3s pointe! o"t in the

9eport by NC3>9 an! by the tan!in Co##ittee, the

!elay has a!versely affecte! the financial benefits that co"l!

have accr"e! to the concerne! parties an! the people

at lare an! is in fact no$ p"ttin a financial strain on

all concerne!.

() *t is !irecte! that the Co##ittee shall take fir# steps

an! fi@ a !efinite ti#efra#e to lay !o$n the "i!elines

for co#pletion of feasibility reports or other reports

an! shall ens"re the co#pletion of proFects so that the

benefits accr"e $ithin reasonable ti#e an! cost.

(*) 3t the initial staes, this prora# #ay not involve

those tates $hich have s"fficient $ater an! are not

s"bstantially involve! in any interlinkin of river

prora##e an! the proFects can be co#plete! $itho"t

their effective participation.

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(**) Ao$ever, the Co##ittee #ay involve any tate for

effective co#pletion of the prora##e at any

s"bse"ent stae.

(***) &here are proFects $here the paper $ork has been

oin for the last ten years an! at s"bstantial cost to

the p"blic e@che"er. &herefore, $e !irect the Central

an! the tate -overn#ents to participate in the prora#

an! ren!er all financial, a!#inistrative an! e@ec"tive

help to co#plete these proFects #ore effectively.

(*/) *t is evi!ent fro# the recor! that the 9eports

s"b#itte! by the &ask Dorce have not been acte!

"pon. &h"s, the entire effort p"t in by the &ask Dorce

has practically been of no "se to the concerne!

overn#ents, #"ch less the p"blic. &he &ask Dorce

has no$ been $o"n! "p. ?et the reports of the &ask

Dorce also be place! before the Co##ittee $hich shall,

$itho"t fail, take !"e note of the s"estions #a!e

therein an! take !ecisions as to ho$ the sa#e are to

be i#ple#ente! for the benefit of the p"blic at lare.

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(/) &he Co##ittee constit"te! "n!er this or!er shall be

responsible for carryin o"t the interlinkin prora#.

*ts !ecisions shall take prece!ence over all

a!#inistrative bo!ies create! "n!er the or!ers of this

Co"rt or other$ise.

(/*) We rant liberty to the learne! Amicus Curiae to file

conte#pt petition in this Co"rt, in the event of !efa"lt

or nonco#pliance of the !irections containe! in this

or!er.

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tate sho"l! la behin! in contrib"tin its bit to brin the

*nterlinkin 9iver Prora# to a s"ccess, th"s savin the

people livin in !ro"htprone %ones fro# h"ner an!

people livin in floo!prone areas fro# the !estr"ction

ca"se! by floo!s.

6. With the observations an! !irections recor!e!

s"pra, Writ Petition (Civil) No.


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networking of rivers sc judgement 27 feb 2012

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