ECBC Adoption in India’s Buildings

Radhika Khosla, PhD

Niti Aayog-ACEEE-UNDP GEF 1st Regional Workshop on ECBC Implementation in States

February 2017

Outline

• Context: What are the outcomes from ECBC implementation so far?

• Findings: What are the reasons behind these outcomes?

• Challenges

• Best Practice Examples

• Looking ahead: Ways forward for code adoption

Context

Source: Khosla et al. (forthcoming 2017)

Mapping the ECBC processTechnological

Change

Dimension

Technology

and Policy

Activities

Flows across governance levels Illustrative List of Key Actors

(Domestic-D, International-I)

Policy Context

Inter-

national

National Sub-

National

Policies Building

energy code

design and

development

D: Bureau of Energy Efficiency (BEE); Bureau of India

Standards (BIS)

I: United States Agency for International Development

(USAID); Swiss Development Corporation (SDC); United

Nations Development Program-Global Environmental

Facility (UNDP-GEF)

-India’s Energy Conservation

Act

-Energy efficiency inclusion

in the revised National

Building Code

-National Climate Mission

on Sustainable Habitat

Building

energy code

adoption and

implementati

on in states

D: BEE; BEE’s State Designated Agencies; State and sub-

state departments; CEPT University (CEPT); Malviya

National Institute of Technology (MNIT); Administrative

Staff College of India (ASCI); Shakti Foundation;

International Institute for Information Technology (IIIT)

I: UNDP-GEF; Natural Resources Defense Council

(NRDC); European Union; Pacific Northwest National

Lab (PNNL); USAID

-Domestic political pressure

to manage energy security

-National policy trends

supporting climate activities

-Pressure from BEE to states

to adopt building energy

policies

Building

rating

systems

D: BEE; Indian Green Building Council; The Energy and

Resources Institute

I: United States Green Building Council; International

Finance Corporation

-Market opportunity from

India's real estate growth

-Supportive national and

international policies

R&D Efficient

technology

R&D and

demonstratio

n

D: Department of Science and Technology (DST); CEPT;

IIIT; Indian Institute of Technology, Bombay; MNIT,

Shakti Foundation; Prayas (Energy) Group; Indian Society

of Heating, Refrigerating and Air Conditioning Engineers

I: USAID; SDC; US Dept. of Energy; Lawrence Berkeley

National Lab (LBNL); Oak Ridge National Lab;

Rensselaer Polytechnic Institute; UC Berkeley; Carnegie

Mellon University; Schneider Electric; Honeywell;

Fraunhofer

- National policy trends

supporting climate activities

-Increasing international

partnerships for clean energy

(e.g., the US-India Joint

Energy Research Center)

Finances Financial

transfer

I: UNDP-GEF; KfW Bank; World Bank; International

Finance Corporation; Asian Development Bank; USAID

-National and international

policy trends supporting

climate activities

Capacities Capacity

building

D: BEE; CEPT; IIIT; National Institute of Architects;

Council of Architecture; Shakti Foundation; MNIT, ASCI

-National and international

policy trends supporting

climate activities

Source: Khosla et al. (forthcoming 2017)

Outcomes and patterns over ten years

• Weak energy performance metrics in spite of multiple activities• Energy Performance Index (EPI) average ~200-400 kWh/sq m/year (efficient building ~100 kWh/sq

m/yr)

• 7 of 35 Indian states and UTs notified the ECBC almost a decade after its launch

• Most states in process of code notification, but yet to see widespread implementation

• Small segment of private developers adopt efficiency technologies

• Most activities flow top-down (international → national → subnational) • States seldom “laboratories of experimentation” or pioneers of policy initiation

• Systematic horizontal linkages between states are minimal

Why weak outcomes? Institutional architecture

• ECBC Policy push from BEE (MoP)

• Notification: coordination between national (MoP)-state (UDD) levels• UDD usually coordinates

w/MoUD

• Post-notification coordination between state (UDD)-local (ULB) to modify bye laws

• Success requires coordination, accountability and compliance monitoring between all three levels – MoP, UDD, ULB

Town Development Offices Town planning offices include provisions

into local bye laws

Ministry of Power: Bureau of Energy Efficiency Develops ECBC

Ministry of Urban Development Responsible for the building guidelines and approval

processes

Na

tio

na

l Le

ve

l S

tate

Le

ve

l Lo

cal

Lev

el

Energy Department Provides technical support for ECBC implementation

Public Works Department

Urban Development Department Develops state development control regulations

Electrical Inspectorate Department KREDL (SDA) Administers ECBC

Architecture Division

(KT ECBC Cell)

Engineering Division

City Corporation

Urban local Bodies (Municipality) Updates municipal building byelaws to be

complaint with ECBC

Illustrative ECBC governance map for Karnataka

Source: Khosla (forthcoming, work in progress)

• Capacity often emphasized, but current capabilities do not mirror requirements for ECBC transformation

• BEE master trainers often not offered opportunities to use acquired skills

• State and local bodies require training to implement, monitor and assess the ECBC

• State and local bodies lack staff numbers to match needs of India’s real estate growth• 80% of SDAs share MNRE and MOP objectives

• Often the number of officials within the SDA to handle ECBC issues is less than 5 persons/state

Why weak outcomes? Capacity Constraints

Best Practice: Karnataka

• 2nd state to approve ECBC cell (2015)• Post notification focus on UDD

• Cell created at the PWD • Contact point for BEE • 3 architects and 1 engineer • Senior third-party expert for training

• Leadership from ECBC cell• Principal chief architect drives functions • Work collaboratively across governance

levels

• ECBC compliant design templates for public buildings

• Inclusion of EE materials in SoR

• Updating building bye laws

• Institutional memory developing around code implementation

Town Development Offices Town planning offices include provisions

into local bye laws

Ministry of Power: Bureau of Energy Efficiency Develops ECBC

Ministry of Urban Development Responsible for the building guidelines and approval

processes

Na

tio

na

l Le

ve

l S

tate

Le

ve

l Lo

cal

Lev

el

Energy Department Provides technical support for ECBC implementation

Public Works Department

Urban Development Department Develops state development control regulations

Electrical Inspectorate Department KREDL (SDA) Administers ECBC

Architecture Division

(KT ECBC Cell)

Engineering Division

City Corporation

Urban local Bodies (Municipality) Updates municipal building byelaws to be

complaint with ECBC

Illustrative ECBC governance map for Karnataka

Source: Khosla (forthcoming, work in progress)

Best Practice: Andhra Pradesh/Telangana• One of 1st states to notify/mandate the ECBC

• Committed leadership to oversee ECBC adoption• Driven by state’s chief secretary

• Complemented by external knowledge partners

• Chief Sec. constituted “Technical Committee” • Inter-departmental membership, regular meetings

• Seniors from depts. of Energy, Municipal Admin. and Urban Dev., Town and Country Planning; state’s chief architect; technical experts

• Consultative approach

• Adapted and simplified ECBC for local conditions • Code purview from connected load to built-up area to make

comprehensible to ULBs who monitor construction

• 1st online compliance system• GHMC first ULB with online ECBC approval system

• Working with Telangana New & Renewable Energy Development Corporation Ltd. (SDA) and MAUD

Organisation of the ECBC Notification Process

Source: Khosla, 2016

SDA

Changing the status quo: Way forward

• Policy programs can assume that technologies/codes along bring change

• Re-think buildings efficiency from a technical problem to a socio-technical problem:

Technology and market access

Users and behaviourPolicies and governance• Role of state departments• Role of municipalities and

urban local bodies

Building energy efficiency

Looking Ahead• Role of leadership within a state

• E.g., Chief Secretary, Principal Secys, ECBC Cell, SDA, Urban Development, Energy Department..

• Capacity building• Identify state specific local needs – pre and post notification (SDA vs. UDD)

• Develop compliance framework and skills for state and local level officials

• Develop technical skills for building professionals (third party)

• Strengthen linkages• How can the Energy and Urban Development Departments work more closely together?

• Better links between state and local levels as effectiveness depends on outcomes on the ground

• Better linkages within states -- network of state energy officials or of ECBC cells?

• Integrate between energy and climate change programs• Absence of buildings in most state action plan on climate change

• Start with a state and scale up local success stories – they are out there!

Thank you

radhika.khosla@gmail.com