INGENIEUR

Can Integrated River Basin

Management Save Our
COVER FEATURE

Rivers?
By Dato’ Ir. Haji Nor Hisham bin Mohd Ghazali
Dato’ Ir. Haji Jamil bin Shaari
Ir. Noor Aishah binti Zaharin
Daniel Liew Yu Chuan
Jabatan Pengairan dan Saliran Malaysia

O
n March 7, 2019, multiple repor ts River Pollution
emerged regarding a sudden wave of
suspected gas or chemical poisoning River pollution is defined as the contamination of
involving three schools in Pasir Gudang, Johor. A the natural river environment by the introduction of
subsequent investigation by the HAZMAT teams pollutants. Prior to release into the water system,
from the Department of Environment eventually wastewater must be treated according to approved
ascertained that the source was from a location standards. Pollution is frequently the result of illicit
in Sungai Kim Kim where apparently tonnes of waste dumping, ignorance of standards of care, or
chemicals were dumped illegally. By April 14, the failure of existing regulated treatment systems
2021, 71 cases of poisoning were reported. This to perform.
led to the temporary closure of 111 schools in the The problem is exacerbated by the growth of
Pasir Gudang township and the indictment of three industry and urbanisation, as water intakes are
individuals under the Environmental Quality Act now located downstream of industries such as
(EQA) 1974. Sungai Kim Kim became a household poultry farms and palm oil mills. Had the upstream
name, and the nation was awakened to the reality catchments been adequately protected, all that
of our rivers’ vulnerability to pollution. would flow downstream would be natural run-off.
The Sungai Kim Kim incident demonstrates the We can easily see that land use planning and
challenge we face to protect our rivers. Despite water resources planning were not co-ordinated
over 25 years of Government river management by tracing the rationale for siting water intakes
programmes, river pollution incidents continue versus industries and farms. Water intakes are
to occur, demonstrating that rivers have yet to typically located in upper catchments where
acquire the reverence they deserve. Integrated the water quality is essentially Class I or II,
River Basin Management (IRBM) has been according to national Water Quality Standards.
adopted as the primary strategy towards a better The location of industries such as palm oil mills
river management since the Ninth Malaysia Plan. It and agriculture farms is determined by the
is the management tool used to achieve the goals availability of agricultural land. This disconnect
of Integrated Water Resources Management. exists because all information is not presented
This is especially true for Malaysia, where river contemporaneously. It is only natural that
water intakes account for more than 90% of the land will be needed as economic development
domestic water supply. With river pollution as the progresses. The threat could have been realised
main threat to this supply, how do IRBM Plans if IRBM and its data inventory had been available.
function as a holistic solution? As development expands into the upper

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 Sungai Setiu

catchments, older and earlier located water History of Integrated River Basin
intakes become increasingly vulnerable. With Management
an IRBM plan in place, land upstream of water
intakes could be zoned as controlled, protected, The concept of integrated water resources
or zero-development zones. management was introduced in the Eighth
Indiscriminate disposal of solid waste and Malaysia Plan following Malaysia’s ratification of
chemical waste on river banks or directly into the Rio Accord. It is an approach that integrates
the river waters has been a major cause of the management of natural resources and
water supply disruptions. Among the theories economic demands within the river basin — a
as to why these incidents occur is that they are geographical unit — serving as the management
associated with efforts to reduce disposal costs. unit. The geographical boundaries of the river
The perpetrators are either manufacturers of the basin are the limits within which water quantity
waste, or the contractors employed to dispose of and quality are assessed. IRBM seeks to
them. Although more an issue of a lack of integrity achieve an equilibrium between water resources
and general civic-mindedness, the option to availability and water demand across all sectors
locate disposal sites away from business centres within current and future development scenarios
has an impact on transportation and operating by looking beyond the administrative boundaries
costs. The spatial information provided by IRBM of districts and states. In essence, IRBM is about
plans would allow future disposal sites to be placing water resources as an economic catalyst
properly sited, allowing businesses to respond while conserving the natural river environment.
accordingly. However, education and cultural Since 2003, IRBM plans have been regularly
change are the only ways to increase integrity and prepared due to a proposal by the Department of
civic awareness. Irrigation and Drainage (DID) that was approved

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by the National Water Council on July 29 of that analysis. An extensive hydrodynamic analysis of
same year. It was part of a strategy to reinforce co- the river system, including water balance analysis,
ordination between the Federal, State and Local high and low flow river analysis, water quality
Governments towards managing the river basins analysis and sediment transport analysis are
effectively and holistically. To date, 37 IRBM plans required when formulating an IRBM plan.
have been completed. These cover more than 70% The results of the extensive hydrodynamic
of Peninsular Malaysia and 25 more IRBM plans analysis are grouped into four major components:
will be completed under the Twelfth Malaysia Plan
which includes Sarawak and Sabah. Water accounting and availability
DID has continuously been promoting This analysis determines the present state of
the adoption of IRBM plans to the relevant water availability and its prospect in meeting the
stakeholders. In the latest development, the water demands within the river basin. The IRBM
National Water Council in April 2021 has plan explores the opportunity to increase reserve
sanctioned that the IRBM plan be a mandatory water availability within the river basin, by either
reference in land development planning at the introducing dual-purpose structures or alternative
state and district levels. resources.

Flood risk assessment

Objectives and Key Elements This assessment is based on the current and
projected land use for the river basin. Based on the
IRBM is geared towards maximising the economic 100 ARI critical storm analysis, an understanding
and social benefits derived from water resources of the flow behaviour is developed, and conceptual
while maintaining and amplifying the water flood mitigation measures are proposed based on
resources ecosystem. The IRBM plan synergises the flood projection. Existing land use information
policies, programmes and practices to achieve and development plans allow non-structural
four main objectives, namely: options to be implemented, such as the gazetting
1. To guarantee enough water; of flood plains and adjacent state land for future
2. To guarantee clean water; construction of off-river storage ponds.
3. To minimise flood risk; and
4. To improve and conserve the environment Coastal
The IRBM plan encompasses planning, The sediment transport analysis assesses the
implementation and consolidation of strategies. risk of possible coastal erosion at the coastline if
It frames the blueprint of necessary activities sediment flow towards the sea is inhibited.
or action plans to sustainably exploit water
resources, improve and conserve the river basins River water quality
in harmony with economic needs. The IRBM plan Published data from the Depar tment of
also defines the enablers for successful plan Environment on river water quality is the primary
execution, which include financial, institutional data used as a baseline in water quality modelling.
governance and legal considerations. Pollution mapping is performed to identify the
contributing pollutants to the river water body.
Simulations during low and normal flows are
Formulating an IRBM Plan conducted to determine the river carrying capacity.
Appropriate pollution reduction strategy for the
The formulation of an IRBM plan begins with river basin is then proposed to achieve the desired
robust primary data input that includes rainfall, Class II river water quality.
river levels and flows, river engineering surveys Aside from the inventory and engineering
and land use. The operational data of water analyses of the water resources, qualitative
extraction and discharge released into the rivers, analysis is conducted through surveys, interviews,
such as sewerage treatment plants and water and stakeholder engagements to better
intakes, are collected to facilitate numerical understand social behaviour, acceptance and

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of design criteria. Engineering facilities such Lost in Translation
as wastewater treatment plants, interceptors Some of the best laid plans fail because of a
and gross pollutant traps require upkeep and literacy divide between the planners and the
upgrades, which create a maintenance challenge implementers. Very often, management plans
sustainable only with ample funds. The damage reside in documents that require commitment
to rivers imparted by development is reflected in from administrators and frontline officers to study
water quality whilst water scarcity is the result of and understand. IRBM plans cannot be seen to be
poor management of water quantity. The strength effective if they are not translated into workable
of IRBM plans is in presenting a comprehensive action plans that specifically guide the frontliners
view of the river basin and how its water — those responsible for approving and enforcing
resources are affected by the current land use the stipulations of the development plans. Even
and its projected changes. While engineering can the language of IRBM plans must be crafted
solve some physical threats, development, once based on the technical level of the readers. IRBM
implemented, is almost irreversible. When land plans are information-rich and must not only be a
use is managed in tandem with water resources high-level document for planners and strategists.
management, the success is multi-dimensional; The plans must therefore be translated or scaled
one sector’s development sustainability and its down to the operational language of frontliners
relationship to other sectors can be determined in the districts where not everyone is expected
at the outset. Threats to rivers can be realised to be water engineers or scientists. IRBM plans
earlier and reduced. must be owned and understood by all. Early
Current IRBM plans are complete with both plans were misconstrued to be relevant only
structural and non-structural measures to promote to the DID when it was meant for all agencies
water security and environmental sustainability. involved in development. In retrospect, a whole-
The main success criterion is adherence to of-Government approach was lacking. Frontline
its recommendations which cannot be legally agencies will fail to realise what their roles are and
imposed unless gazetted as law. how to improve their functions if IRBM plans are

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not implanted into their workflow. This inclusion in transboundary river basins where conflicts are
would require capacity building for the various more complex and touch on the sovereign rights
levels of players. of State Governments. Nevertheless, a positive
outcome of the draft bill was that it moved many
Legislation and Enforcement states to revise their existing Water Enactments to
The purpose of legislation is to influence human be in line with the spirit of the proposed law.
behaviour. Under the Federal Constitution, both Laws can ensure that management systems
Federal and State Governments have their specific are maintained. Legislation that stipulates the
functions in matters pertaining to water, rivers, need to adhere to and periodically review IRBM
land and forest. In general, the Federal Government plans would make them influential as a reference
is responsible for promoting uniformity in for future planning and ensure the continuity of
legislation, management of hydrological data from good practices.
the planning to the collection stage as well as
providing technical advice, including conducting Point Source Monitoring and Total Maximum
required river basin management plans, surveys, Daily Load
studies and detailed design works. The State The Environment Quality Act (EQA) 1974
Government, on the other hand, is responsible established the threshold criteria (standards)
for the management of water resources, including for discharged effluents before entering natural
gazetting water catchment areas and controlling water bodies, assuming that pollutants would be
land development in states. Pollutants in rivers diluted. The standards, however, do not take into
are regulated by the Environment Quality Act 1974, account the ability of the receiving water body
Water Service Industry Act 2006, Street, Drainage to dilute the pollutants. To manage discharged
and Building Act 1974, Local Government Act contaminants properly, many water scientists and
1976 and Sewerage Services Act 1993. engineers support a paradigm shift towards the
The fragmented state of water resources Total Maximum Daily Load (TMDL) approach.
management was a primary cause for concern as TMDL is defined as the maximum amount
water was managed by no less than 35 agencies. of pollutants a water body can receive without
Unification of water agencies under one ministry compromising its desired water quality standard.
was among the first solutions implemented and Controlling the amount and rate of release is a
this has been in effect since 2018. After the 2018 promising strategy for restoring, enriching, and
general election, the Department of Irrigation maintaining the river and its habitat. Broadly
and Drainage, Department of Sewerage Services speaking, TMDL sets the upper limit of pollutant
and the Water Supply Division were placed under entry to ensure that the receiving water body will
the Ministry of Water and Natural Resources and not degrade. TMDL can be utilised as a strategy
subsequently under the Ministry of Environment to place the IRBM approach in action and steer
and Water (KASA). With this union, the co- various Government departments, agencies,
ordination of the implementation of infrastructure private sectors and local communities towards
projects particularly at the planning and design the same goal. Exploration and investment in
level is expected to improve. real-time monitoring are worthwhile endeavours
Limited legal authority granted to Government to address the concerns surrounding effluent
organisations, conflicting interests between discharge. By stipulating the river’s carrying
State Governments and insufficient enforcement capacity, determined through the TMDL approach
due to limited human resources are amongst in the existing water enactments, a mechanism
the main factors which contribute towards poor for harmonising Federal and State laws could be
compliance to legislation. A Federal bill designed achieved.
to modernise and unify all water resource laws
was mooted in 2015 but this was eventually Inclusivity
relegated to a model law. The proposed bill, if The presumption that the Government is the sole
adopted by all states, would have paved the way entity accountable for pollution management must
for the establishment of River Basin Authorities be removed. As water is deemed a human right,

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Denai Sungai Kebangsaan - DSK

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ROLPOP : River Adoption by Local Communities

correspondingly all are responsible for water. Every done in collaboration with the State Government
individual has a role to play and this has been the to invite the public to create activities there.
primary objective of community education and With a heightened public presence along
public awareness (CEPA) programmes. Selling the rivers, they could provide voluntary river
the idea that IRBM promotes efficient water surveillance, conservation and beautification.
management which in turn is an economic catalyst In the long run, it will inculcate a sense of
can be the defining strategy to achieve buy-in from ownership and responsibility towards rivers. In
administrators and businesses. essence, DSK is a programme to acknowledge
IRBM plans recognise the importance of public societal responsibility by instilling awareness,
participation to complement the engineering accountability and stewardship among the public
interventions in managing river pollution. Realising in performing CPR — conservation, protection
that illegal waste disposal usually happens along and rehabilitation — on the rivers. In addition,
secluded river reaches, KASA reasons that DSK also has the potential to contribute to local
frequent public presence along the river banks eco-tourism as demonstrated by the pilot DSK
would deter illegal dumping and initiated the in Pengkalan Datu, Kelantan. This unique trail,
National River Trails programme (Denai Sungai which was opened in October 2020, with nearly
Kebangsaan - DSK). 50% of its length above water, has become a
Under this programme, river trails will be popular tourist attraction and a catalyst for the
created for hiking or biking along the river banks. local economy.
From simple trails that improves accessibility, River trails bring people to the river and
these trails could then gradually be expanded improve connectivity. The early success of the
into recreation areas and public parks. Frequent Pengkalan Datu River Trail informs the hypothesis
human presence will inhibit illegal settlements, that a river trail is potentially an economic
deter the unscrupulous from disposing scheduled stimulus. As the local community realises that
waste or creating dumping areas and landfills and a pleasant river environment could lead to
other activities on the banks of our rivers. Jogging monetary returns, the river is transformed into
tracks, trails and parks in the river reserve will be an asset worth protecting.

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Enabling Change and Moving Forward of its economic potential. Such values will be the
indirect deterrent against pollution.
There is much that we have to achieve in Using IRBM as a tool, empowering governance
managing our water resources. Pollution has through inclusivity, and with educated and caring
been constantly the issue involving our rivers communities as the enablers, river conservation
that are the main source of raw water. Over can be significantly enhanced. River pollution
time, balancing between the economic benefits occurs when planning principles or mitigation
and environmental sustainability has become systems fail, or when a would-be polluter acts
very marginal, and it calls for a transformation upon his dire need for convenience. IRBM with its
in river basin management. Learning from the capacity to blend scientific and human thinking
gaps and experiences, the Federal Government processes, can place all issues in their proper
has launched the Water Sector Transformation perspective and facilitate the resolution of
2040 programme that aspires to transform the conflicts. Everyone is part of a river basin, and the
water sector from a supporting entity to a wealth IRBM serves everyone. The living environment we
creation entity. IRBM plans, developed with the desire in the future begins with how well we plan
inclusion of living things and their elements in development in the river basin today.
mind, as well as economic and development needs
while remaining environmentally conscious, will be REFERENCE
a pillar in pragmatic planning and management, Air Selangor (2020), Henti Tugas Loji Rawatan Air
addressing all issues related to water resources. Sungai Selangor Fasa 1, 2, 3 dan Rantau Panjang
Meanwhile, the formula for a joint authority over a Berikutan Pencemaran Sumber Air Mentah [Press
transboundary river basin continues to elude us. release]. 18 October.
The existing challenge for IRBM is that it is a
tool that still requires constant practice in order to ASM (2016). Transforming the Water Sector:
master. The playing field for IRBM is the meeting N ati onal Integ r ated Water Re sour c e s
rooms where a potpourri of water issues from the Management Plan Strategies and Road Map.
scientific to the socio-economic are discussed, Academy of Sciences Malaysia.
leading towards compromise and consensus. ASM (2019). Lessons from Sungai Kim Kim, Pasir
Pollution is evidently a common denominator since Gudang. Academy of Sciences Malaysia.
it originates from humans, propagates through
the apathy of humans, and can be resolved by DID (2011). National Water Resources Study:
the combined efforts of humans. The elements of Review of the National Water Resources (2000-
a solution to this perennial problem exist within 2050) and Formulation of National Water
the IRBM plans. IRBM plans must be owned by Resources Policy. Department of Irrigation and
everyone with a role to play in development be it a Drainage, Malaysia.
private or public entity.
IEM (2021). Water Hazard & Security – IR4.0 Era.
Many emerging programmes emphasise
Jurutera, March 2021. The Institution of Engineers
the local community and their commitment to
Malaysia.
preserving natural resources. A shift from total
reliance on Government initiatives must happen IEM (2020). Water Resources – Demand, Climate
for society to contribute more and eventually and Sustainability. Jurutera, March 2020. The
improve their living environment. This cultural Institution of Engineers Malaysia.
transformation is heavily dependent on awareness
and education. In the Twelfth Malaysia Plan, CEPA Violette Geissen, Hans Mol, Erwin Klumpp, Günter
programmes have been included to achieve this Umlauf, Marti Nadal, Martine van der Ploeg,
transformation. Sjoerd E.A.T.M. van de Zee, Coen J. Ritsema
The construction of river trails promises to be (2015). Emerging Pollutants in the Environment:
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creating a sense of ownership and appreciation Research, 3(1), pp 57-65.

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