Performance Audit of Ground Water Management and Regulation, Ministry of Jal Shakti (Department of Water Resources, River Development and Ganga Rejuvenation)

A performance audit of ground water management and regulation in India — the resource that supplies about 62 per cent of irrigation water, 85 per cent of rural drinking water and 45 per cent of urban supply. It examines the adequacy of the management framework, how regulation is enforced, the central sector scheme on ground water, and progress towards Sustainable Development Goal 6.

Audit period: 1 Apr 2012 — 31 Mar 2020
Presented: 21 Dec 2021

Findings

Delhi, Haryana, Punjab and Rajasthan were extracting more ground water than was being recharged — a stage of extraction above 100 per cent — and 267 districts across 24 states were above the national average of 63 per cent, some as high as 385 per cent.
“The percentage of utilisation of ground water with respect to recharge, known as stage of extraction of ground water in the country was 63 per cent. In 13 States/UTs, the stage of extraction was higher than the national stage of extraction. Four States/UTs (Delhi, Haryana, Punjab and Rajasthan) had a stage of extraction of more than 100 per cent, indicating that extraction of ground water has surpassed the recharge of ground water. At the district level, in 24 States/UTs, 267 districts had stage of extraction more than 63 per cent ranging from 64 per cent to 385 per cent.”Executive Summary
Between 2004 and 2017 extraction rose from 58 to 63 per cent of recharge, while the share of safe blocks fell and the share categorised semi-critical, critical and over-exploited steadily rose.
“During the period 2004 to 2017, the stage of extraction of ground water has increased from 58 to 63 per cent. During the same period, the percentage of safe blocks has decreased while the percentage of blocks categorised as semi-critical, critical and over-exploited has steadily increased.”Executive Summary
Of 14,387 observation wells compared against the decadal post-monsoon mean, 9,260 — about 64 per cent — showed a decline in water level.
“A comparison of depth to water level of post-monsoon 2018 with the decadal mean of post-monsoon (2008-17) relating to data available from 14,387 observation wells of CGWB indicated that in 5,115 (about 36 per cent) wells there was a rise in water level. However, 9,260 (about 64 per cent) wells showed decline in water level.”Executive Summary
Against 50,000 observation wells proposed by the end of 2012-17 to measure ground water levels, only 15,851 were being monitored as of 31 March 2019.
“Against the proposed number of 50,000 observation wells (by the end of the XII Plan period i.e. 2012-17) to measure ground water level, a network of only 15,851 observation wells were being monitored as of 31 March 2019.”Executive Summary
Testing at 15,165 locations across 32 states in 2015 found contamination above permissible limits — nitrate at 2,015 locations, iron at 1,389, arsenic at 697, fluoride at 637 and salinity at 587.
“As per the data for 2015 based on 15,165 locations in 32 States tested by CGWB, ground water had levels of contaminants higher than permissible limits of Arsenic (697 locations), Fluoride (637 locations), Nitrate (2,015 locations), Iron (1,389 locations) and Salinity (587 locations).”Executive Summary
Of 328 sampled projects whose consent to operate required a no-objection certificate for ground water extraction, 253 — 77 per cent — were operating without one; and 2,475 of 3,189 packaged drinking water units licensed since 2013 were operating without one.
“Out of a sample of 328 cases in 18 States where the Consent to Operate (CTO) granted to a project proponent included a condition which required NOC for ground water extraction, 253 projects (77 per cent) were operating without NOCs… In 15 States for which data was made available to audit, 3,189 Bureau of Indian Standards (BIS) licenses were issued to packaged drinking water units since 2013, of which in 2,475 cases (78 per cent), the project proponents were operating without obtaining NOCs from CGWA.”Executive Summary
10,758 applications for a no-objection certificate were pending as of 31 March 2019 — three times the number issued in the previous six years — and in 474 cases where renewal was due nobody applied and the authority took no action, so those projects kept drawing water unregulated.
“During 2013-19, CGWA accorded 3,517 fresh NOCs and renewed 320 NOCs for ground water withdrawal to various industry, mining and infrastructure projects. As on 31 March 2019, 10,758 applications for grant of NOC and 144 applications for renewal were pending… In 474 cases, renewal of NOC was due during 2013-18 but the project proponents did not apply for renewal. CGWA did not take any action under section 15 of the Environment (Protection) Act, 1986 against these project proponents.”Executive Summary
Despite widespread violation of the conditions attached to no-objection certificates, the authority issued show cause notices to only 99 project proponents between 2013 and 2018.
“There were numerous cases in which conditions stipulated in the NOCs were violated. Despite the widespread violations, CGWA issued (2013-18) show cause notices to only 99 project proponents.”Executive Summary
Against a budget estimate of ₹2,349.48 crore for 2012-19, actual expenditure on the ground water scheme was ₹1,109.73 crore; the ₹575.38 crore participatory ground water management component for 2013-17 saw no expenditure at all and was dropped.
“Against the Budget Estimate of ₹ 2,349.48 crore for 2012-19, the Actual Expenditure under the Scheme was ₹ 1,109.73 crore… Although an outlay of ₹ 575.38 crore was provided for the period 2013-17 under the component Participatory Ground Water Management (PGWM) in accordance with the National Water Policy 2012, no expenditure was incurred. The component was dropped from the subsequent EFC memo of 2017-20.”Executive Summary
Aquifer mapping covered 13 lakh of 24.8 lakh sq km by September 2020, with reports finalised for 6.5 lakh sq km and modelling done for about 3 lakh sq km; no web system was built to share the maps.
“Area of 24.8 lakh sq. km area was identified for Aquifer Mapping in the country. CGWB covered an area of 13 lakh sq. km. (52 per cent) as of September 2020. Further, Aquifer Mapping Reports for only 6.5 lakh sq. km. were finalised and ground water modelling for ~3 lakh sq. km. were completed as of September 2020… Though CGWB had published aquifer mapping reports, a web-based system for easy dissemination of the information on the aquifer mapping was not designed, as envisaged.”Executive Summary

Fact-checks citing this report

Not supported by auditWe will nurture ground water recharge harnessing rain water to reduce dependence on ground water… Introduce and promote low water consuming irrigation techniques and optimum utilization of water resources… Examination of ground water to eliminate toxic chemicals, particularly arsenic and fluorides.

Performance Audit of Ground Water Management and Regulation, Ministry of Jal Shakti (Department of Water Resources, River Development and Ganga Rejuvenation)

Findings

Delhi, Haryana, Punjab and Rajasthan were extracting more ground water than was being recharged — a stage of extraction above 100 per cent — and 267 districts across 24 states were above the national average of 63 per cent, some as high as 385 per cent.

“The percentage of utilisation of ground water with respect to recharge, known as stage of extraction of ground water in the country was 63 per cent. In 13 States/UTs, the stage of extraction was higher than the national stage of extraction. Four States/UTs (Delhi, Haryana, Punjab and Rajasthan) had a stage of extraction of more than 100 per cent, indicating that extraction of ground water has surpassed the recharge of ground water. At the district level, in 24 States/UTs, 267 districts had stage of extraction more than 63 per cent ranging from 64 per cent to 385 per cent.”Executive Summary

Between 2004 and 2017 extraction rose from 58 to 63 per cent of recharge, while the share of safe blocks fell and the share categorised semi-critical, critical and over-exploited steadily rose.

“During the period 2004 to 2017, the stage of extraction of ground water has increased from 58 to 63 per cent. During the same period, the percentage of safe blocks has decreased while the percentage of blocks categorised as semi-critical, critical and over-exploited has steadily increased.”Executive Summary

Of 14,387 observation wells compared against the decadal post-monsoon mean, 9,260 — about 64 per cent — showed a decline in water level.

“A comparison of depth to water level of post-monsoon 2018 with the decadal mean of post-monsoon (2008-17) relating to data available from 14,387 observation wells of CGWB indicated that in 5,115 (about 36 per cent) wells there was a rise in water level. However, 9,260 (about 64 per cent) wells showed decline in water level.”Executive Summary

Against 50,000 observation wells proposed by the end of 2012-17 to measure ground water levels, only 15,851 were being monitored as of 31 March 2019.

“Against the proposed number of 50,000 observation wells (by the end of the XII Plan period i.e. 2012-17) to measure ground water level, a network of only 15,851 observation wells were being monitored as of 31 March 2019.”Executive Summary

Testing at 15,165 locations across 32 states in 2015 found contamination above permissible limits — nitrate at 2,015 locations, iron at 1,389, arsenic at 697, fluoride at 637 and salinity at 587.

“As per the data for 2015 based on 15,165 locations in 32 States tested by CGWB, ground water had levels of contaminants higher than permissible limits of Arsenic (697 locations), Fluoride (637 locations), Nitrate (2,015 locations), Iron (1,389 locations) and Salinity (587 locations).”Executive Summary

Of 328 sampled projects whose consent to operate required a no-objection certificate for ground water extraction, 253 — 77 per cent — were operating without one; and 2,475 of 3,189 packaged drinking water units licensed since 2013 were operating without one.

“Out of a sample of 328 cases in 18 States where the Consent to Operate (CTO) granted to a project proponent included a condition which required NOC for ground water extraction, 253 projects (77 per cent) were operating without NOCs… In 15 States for which data was made available to audit, 3,189 Bureau of Indian Standards (BIS) licenses were issued to packaged drinking water units since 2013, of which in 2,475 cases (78 per cent), the project proponents were operating without obtaining NOCs from CGWA.”Executive Summary

10,758 applications for a no-objection certificate were pending as of 31 March 2019 — three times the number issued in the previous six years — and in 474 cases where renewal was due nobody applied and the authority took no action, so those projects kept drawing water unregulated.

“During 2013-19, CGWA accorded 3,517 fresh NOCs and renewed 320 NOCs for ground water withdrawal to various industry, mining and infrastructure projects. As on 31 March 2019, 10,758 applications for grant of NOC and 144 applications for renewal were pending… In 474 cases, renewal of NOC was due during 2013-18 but the project proponents did not apply for renewal. CGWA did not take any action under section 15 of the Environment (Protection) Act, 1986 against these project proponents.”Executive Summary

Despite widespread violation of the conditions attached to no-objection certificates, the authority issued show cause notices to only 99 project proponents between 2013 and 2018.

“There were numerous cases in which conditions stipulated in the NOCs were violated. Despite the widespread violations, CGWA issued (2013-18) show cause notices to only 99 project proponents.”Executive Summary

Against a budget estimate of ₹2,349.48 crore for 2012-19, actual expenditure on the ground water scheme was ₹1,109.73 crore; the ₹575.38 crore participatory ground water management component for 2013-17 saw no expenditure at all and was dropped.

“Against the Budget Estimate of ₹ 2,349.48 crore for 2012-19, the Actual Expenditure under the Scheme was ₹ 1,109.73 crore… Although an outlay of ₹ 575.38 crore was provided for the period 2013-17 under the component Participatory Ground Water Management (PGWM) in accordance with the National Water Policy 2012, no expenditure was incurred. The component was dropped from the subsequent EFC memo of 2017-20.”Executive Summary

Aquifer mapping covered 13 lakh of 24.8 lakh sq km by September 2020, with reports finalised for 6.5 lakh sq km and modelling done for about 3 lakh sq km; no web system was built to share the maps.

“Area of 24.8 lakh sq. km area was identified for Aquifer Mapping in the country. CGWB covered an area of 13 lakh sq. km. (52 per cent) as of September 2020. Further, Aquifer Mapping Reports for only 6.5 lakh sq. km. were finalised and ground water modelling for ~3 lakh sq. km. were completed as of September 2020… Though CGWB had published aquifer mapping reports, a web-based system for easy dissemination of the information on the aquifer mapping was not designed, as envisaged.”Executive Summary