Implementation of the National Action Plan on … of the National Action Plan on Climate Change (NAPCC) - Progress & Evaluation. ... DPR Detailed Project Report ... Implementation

L E A D

Implementation of the National Action

Plan on Climate Change (NAPCC) -

Progress & Evaluation

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implementation of policies that support energy efficiency and renewable energy.

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L E A D

Implementation of the National Action

Plan on Climate Change (NAPCC) -

Progress & Evaluation

June 2015

Authors:

Vivek Venkataramani and V. Shivaranjani are Researchers in the Environment and Climate Change Programme at the Centre for Development Finance (CDF), IFMR LEAD.

Kadambari Anantram is an independent consultant with this programme for this Study.

The research contributions provided by Ms. Sabnam Gafoor (Research Associate) and Dr. Isaac Manuel (Senior Research Associate) of IFMR LEAD are duly appreciated.

Cover Images:?FreeImages.com (created by dfu and Miguel Saavedra)?http://www.wallpaper4k.com/wallpaper/hi_tech/wplp68tb.html#?http://civilsolution.wordpress.com/2012/12/10/the-5-biggest-dams-in-india/?FreeDigitalPhotos.net (created by cuteimage)?Vivek Venkataramani

The study report can be accessed at http://ifmrlead.org/napcc-progress-and-evaluation/

ii

We are deeply indebted to the officials from various Ministries and Departments of the Central

government and experts for speaking with us at length to share their experiences and invaluable

insights. The support and cooperation extended by the Ministries and Mission directorates,

contacted for the fulfilment of our information requirements and guidance, is gratefully appreciated.

We express our gratitude to Mr. Kunal Sharma, Senior Program Manager and Ms. Sriya Mohanti,

Program Associate, of Shakti Sustainable Energy Foundation for supporting us during the study and

the final stakeholder workshop.

We also express our heartfelt appreciation to Dr. Arivudai Nambi. A, Strategy Head, Vulnerability and

Adaptation, World Resource Institute and Mr. Toine van Megen, co-founder of Auroville Consulting

for reviewing select sections of the report and providing their valuable feedback.

We would like to thank Ms. Sunanda Rathi, former Research Associate, CDF, IFMR LEAD for her

valuable research inputs on select Missions. We would also like to highlight the persistent efforts by

our consultant Mr. Vijay Srinivas for reaching out to the government officials during the course of this

Study.

We gratefully acknowledge the assistance provided by Ms. Vinaina Suri and Ms. Shreya Das from our

Policy & Outreach Team during the final stakeholder workshop. Finally, we would like to thank our

Senior Research Manager, Dr. Uma Ramachandran and Advisor Dr. V. Rajagopalan (Former Secretary,

MoEF&CC) for their inputs in finalizing the Study report and hosting the final stakeholder workshop.

Acknowledgements

Implementation of the National Action Plan on Climate Change (NAPCC) - Progress & Evaluation

Acknowledgements

List of Tables

List of Acronyms

1. Introduction

7.

Contents

Rationale of the Study2.

Framework and Methodology3.

Jawaharlal Nehru National Solar Mission

National Mission for Enhanced Energy Efficiency5.2

National Mission on Sustainable Habitat5.3

National Water Mission

5.1

5.4

National Mission for Sustaining the Himalayan Ecosystem5.5

National Mission for a Green India5.6

National Mission for Sustainable Agriculture5.7

National Mission on Strategic Knowledge for Climate Change5.8

Results and Findings 5.

Recommendations 6.

Conclusion

iii

Key Observations and Policy Concerns in Mission Implementation4.

Bibliography

Annexure: List of Experts

ii

iv

v

1

2

3

5

7

7

13

17

20

23

26

29

32

36

38

39

42


Table 5.2:

List of Tables

iv

Progress of the JNNSM for the first quarter of 2015

7

8

18

21

24

27

30

33

Table 5.3:

Table 5.4:

Table 5.5:

Table 5.7:

Table 5.1:

Table 5.6:

Table 5.8:

Barriers to effective implementation of the JNNSM

Tracking the progress of NMSH

Tracking the progress of NWM

Tracking the progress of NMSHE

Tracking the progress of GIM

Tracking the progress of NMSA

Tracking the progress of NMSKCC across key domains


AAP Annual Action PlanAD Accelerated DepreciationADB Asian Development BankAEA Accredited Energy AuditorAPERC Andhra Pradesh Electricity Regulatory CommissionATMA Agriculture Technology Management AgencyBB Brahmaputra BoardBEE Bureau of Energy EfficiencyBYL Bachat Lamp YojanaCAMPA Compensatory Afforestation Fund Management and Planning AuthorityCAZRI Central Arid Zone Research InstituteCCC Climate Change CellsCCCR Centre for Climate Change ResearchCDP City Development PlanCDM Clean Development MechanismCERC Central Electricity Regulatory CommissionCFM Community Forest ManagementCGWB Central Ground Water BoardCLCCC City Level Committee on Climate ChangeCPHEEO Central Public Health and Environmental Engineering OrganisationCPWD Central Public Works DepartmentCRIDA Central Research Institute for Dry Land AgricultureCSIR Council for Scientific and Industrial ResearchCSS Centrally Sponsored SchemesCST Concentrated Solar ThermalCWC Central Water CommissionDAAD German Academic Exchange ServiceDAC Department of Agriculture & CooperationDADF Department of Animal Husbandry Dairying & FisheriesDARE Department of Agricultural Research and EducationDBT Department of BiotechnologyDC Designated ConsumerDELP Domestic Electricity Lighting ProgrammeDMC District Mission CommitteeDNI Direct Normal IncidenceDoS Department of SpaceDoST Department of Science and TechnologyDPC District Planning CommitteesDPR Detailed Project ReportDSM Demand Side ManagementEC Energy ConservationECBC Energy Conservation Building CodeEE Energy EfficiencyEEFP Energy Efficiency Financing Platform

List of Acronyms

v


EESL Energy Efficiency Services LimitedEFC Expenditure Finance CommitteeEPC Engineering, Procurement and ConstructionESCert Energy Saving CertificateESCO Energy Service CompanyFDA Forest Development AgenciesFEEED Framework for Energy Efficient Economic DevelopmentFI Financial InstitutionFoR Forum of RegulatorsFY Financial YearGBPIHED G.B Pant Institute of Himalayan Environment and DevelopmentGHI Global Horizontal IncidenceGIM Green India MissionGW GigawattHPC High Powered CommitteeHRD Human Resource DevelopmentHRIDAY Heritage City Development and Augmentation YojanaHSBC Hongkong & Shanghai Bank CorporationICAR Indian Council of Agriculture ResearchIEX Indian Energy ExchangeIFCI Industrial Finance Corporation of IndiaIHCAP Indian Himalayas Climate Adaptation ProgrammeIHR Indian Himalayan RegionIISc Indian Institute of ScienceIIT Indian Institute of TechnologyIITM Indian Institute for Tropical MeteorologyIMD Indian Meteorological DepartmentIMG Inter-Ministerial GroupINCCC Indian National Committee on Climate ChangeIREDA Indian Renewable Energy Development AgencyIUT Institute of Urban TransportIWMP Integrated Watershed Management ProgrammeJFMCs Joint Forest Management CommitteesJNNSM Jawaharlal Nehru National Solar MissionJnNURM Jawaharlal Nehru National Urban Renewal MissionJNU Jawaharlal Nehru UniversityKVK Krishi Vigyan KendrasM&E Monitoring and Evaluation MCX Multi-Commodity ExchangeMEA Ministry of External AffairsMIP Mission Implementation PlanMNRE Ministry of New and Renewable EnergyMNREGs Mahatma Gandhi National Rural Employment Guarantee SchemeMoEF&CC Ministry of Environment, Forest & Climate ChangeMoES Ministry of Earth SciencesMoF Ministry of FinanceMoP Ministry of Power

vi


MoST Ministry of Science and TechnologyMoUD Ministry of Urban DevelopmentMoWR Ministry of Water ResourcesMRV Monitoring, Reporting & VerificationMTEE Market Transformation for Energy EfficiencyMtoe Million tonnes of oil equivalentMW MegawattNAC National Advisory CommitteeNAEB National Afforestation and Eco-development BoardNAP National Afforestation ProgrammeNAPCC National Action Plan on Climate ChangeINCCA/NATCOM Indian Network for Climate Change Assessment/National CommunicationNBWUE National Bureau of Water Use EfficiencyNCDEX National Commodity and Derivatives ExchangeNCEF National Clean Energy FundNCHG National Centre for Himalayan GlaciologyNEERI National Environmental Engineering Research InstituteNGO Non-Governmental OrganisationNICRA National Initiative on Climate Resilient AgricultureNIH National Institute of HydrologyNIOT National Institute for Ocean TechnologyNISTADS National Institute for Science, Technology & Development StudiesNIT National Institute of TechnologyNMEEE National Mission for Enhanced Energy EfficiencyNMMI National Mission on Micro IrrigationNMSA National Mission for Sustainable AgricultureNMSH National Mission on Sustainable HabitatNMSHE National Mission for Sustaining the Himalayan EcosystemNMSKCC National Mission on Strategic Knowledge for Climate ChangeNPMSH&F National Project on Management of Soil Health & FertilityNPOF National Project on Organic FarmingNRDMS Natural Resources Data Management SystemsNRLM National Rural Livelihoods MissionNSM National Solar MissionNTPC National Thermal Power CorporationNUDM National Urban Development MissionNUTP National Urban Transport PolicyNVVN NTPC Vidyut Vyapar NigamNWM National Water MissionPAT Perform, Achieve & TradePFI Participating Financial InstitutionPHE Public Health EngineeringPIB Press Information BureauPMCCC Prime Minister's Council on Climate ChangePMES Programme Monitoring and Evaluating SystemPMU Programme Management Unit

vii


PPA Power Purchase AgreementPRI Panchayati Raj InstitutionPSC Project Sanctioning CommitteePXIL Power Exchange India LimitedR&D Research & DevelopmentRADP Rainfed Area Development ProgrammeRE Renewable EnergyREC Renewable Energy CertificateRKVY Rashtriya Krishi Vikas YojanaRPO Renewable Purchase ObligationS&T Science & TechnologySAP State Agriculture PlanSAPCC State Action Plan on Climate ChangeSAU State Agricultural UniversitiesSCI Smart Cities InitiativeSDA State Designated AgencySDA Swiss Development AgencySEEP Super Efficient Equipment ProgrammeSECI Solar Energy Corporation of IndiaSEC Specified Energy ConsumptionSERC State Electricity Regulatory CommissionSFDA State Forest Development AgenciesSHGs Self Help GroupsSIBDI Small Industries Development Bank of IndiaSLC State Level CommitteeSLUSI Central Sector Scheme of Soil and Land Use Survey of IndiaSME Small and Medium EnterprisesSMSA State Mission for Sustainable AgricultureSPV Solar PhotovoltaicSSTC State Standing Technical CommitteeSTC Standing Technical CommitteeTCPO Town and Country Planning OrganisationTIFAC Technology, Information & Forecasting Assessment CouncilToR Terms of ReferenceTSU Technical Support UnitUERC Uttarakhand Electricity Regulatory CommissionULB Urban Local BodyUPCL Uttarakhand Power Corporation LimitedURDPFI Urban and Regional Development Plans Formulation and ImplementationWII Wildlife Institute of IndiaWRIS Water Resources Information System

viii


The percolation of climate policy into India's development planning framework has been motivated by

and given considerable thrust with the Government of India's announcement of the National Action Plan

on Climate Change (NAPCC) in 2008. This has brought the focus on to a sectoral discussion to address

climate adaptation and mitigation concerns in the backdrop of the country's development opportunities

and challenges. The roadmap for this has been provided in the form of eight National Missions, which

identify sector-specific measures to be implemented either in conjunction with or in addition to ongoing

government initiatives in public provisioning and regulation. The National Missions in the NAPCC

mandate are: Jawaharlal Nehru National Solar Mission (JNNSM), National Mission for Enhanced Energy

Efficiency (NMEEE), National Mission on Sustainable Habitat (NMSH), National Water Mission (NWM),

National Mission for Sustaining the Himalayan Ecosystem (NMSHE), National Mission for a Green India

(GIM), National Mission for Sustainable Agriculture (NMSA), and National Mission on Strategic

Knowledge for Climate Change (NMSKCC).

The NAPCC being a significant formulation of India's response to climate change, states that it should

adopt an approach that is “compatible with our [its] role as a responsible member of the international

community, ready to make our [its] contribution to the solution of a global challenge, which impacts on

humanity as a whole.” In view of this, it becomes crucial to examine its status on a periodic basis to project

veritable accomplishments to key stakeholders at the domestic and international platforms. Hence, its

mandate is expected to lead to tangible and notable institutional outcomes that could potentially account

for the country's concerted response to core adaptation and mitigation concerns. While the JNNSM and

NMEEE wholly address mitigation actions, other Missions like the NMSH, GIM and the NMSA do so in part.

NMSKCC is considered to be more of a support Mission to complement all others in their technical

capacity building and knowledge networks. Along with the rest of the Missions, they largely outline

suitable adaptation measures for implementation.

The NAPCC has proposed the implementation of the National Missions to be undertaken in a consultative

manner, actively engaging multi-stakeholder groups which include the Ministry of Finance, the erstwhile

Planning Commission, experts from industry, academia and civil society, in addition to the related

Ministries. It envisages the establishment of “appropriate institutional mechanisms suited for effective

delivery of each individual mission's objectives and include public private partnerships and civil society

action”. It also acknowledges that building public awareness and undertaking appropriate capacity

building activities are essential complements in achieving the goals of the Missions.

While implementation of the National Missions is led by nodal Ministries identified under the NAPCC, the

Prime Minister's Council on Climate Change (PMCCC) is vested with the responsibility of approving

Mission programmes and monitoring their progress.All the eight Missions have been approved by the

PMCCC and are at various stages of implementation. Each Mission has developed specific objectives that th thspan from the latter half of the 11 Plan (until March 2012) to the 12 Plan Period (2012-17). It has been

widely noted that the Mission documents are not uniformly written; however, all of them have detailed

objectives, strategies, plan of action, timelines, and monitoring and evaluation criteria. Each Mission is

expected to report publicly on its annual performance, to facilitate effective monitoring and evaluation.

1

1. Introduction


2

2. Rationale of the StudyThe integration of climate policy concerns into an established governance framework, with substantial

effort towards mainstreaming of programmatic resources necessitates a systematic evaluation of both

core and incremental accomplishments. In the context of the NAPCC and the National Missions

established by it, this becomes an important requirement, given the stratified nature of planning and

implementation of government programmes in the country. With varying roles addressed by the Centre,

State and Local governments, and multiple authorities governing development and infrastructure

provisioning aspects, it becomes vital to understand the underlying mechanism that is expected to

facilitate the internalisation of the Mission goals.

The framing of lucid policies and design of effective mechanisms to translate them into action are

important precursors to successful implementation. Given that the Missions aim at mainstreaming 1specific climate change concerns with ongoing schemes/activities , their implementation relies

considerably on regulatory restructuring and realignment of existing institutional mechanisms

(or creation of new ones). The NAPCC mandate has to advance from being a comprehensive national

roadmap to becoming a dynamic vehicle in addressing the aforesaid concerns. In this regard, the Missions

exhibit varying degrees of progress, from the relatively more active ones like the JNNSM and NMEEE to

those in their preparatory phases, like the NMSA, NMSKCC or NMSHE.

Therefore, it becomes crucial to evaluate attainment levels, identify the need for mid-course revisions

and adopt feasible process improvements wherever necessary. These could emerge from a thorough

examination of factors that explain the current status of the Missions and their progress thus far.

Viewed as a whole, the Missions represent a combination of specific, quantifiable milestones as well as

re-orientation efforts that are more qualitative in nature. Hence, there is a need to track developments

and achievements under each Mission for both physical progress as well as the genesis of its enabling

policy framework at depth.

IFMR LEAD had earlier undertaken a design evaluation of the NAPCC in 2012 which mainly focused on

the structure and policy content of the eight Missions. This is a follow-up study to track and evaluate the

progress achieved in implementing them.

Given the above context, this Study attempts at providing pointers to facilitate effective implementation

of the National Missions under the NAPCC, as well as highlight key policy aspects that augur well to

further this national mandate. Specific objectives include:

?To determine the extent to which individual Mission implementation adheres to the Mission

design?To determine the extent to which key institutions have the mandate and resources to implement

the Missions?To identify barriers to effective implementation of the Missions?To identify practices that facilitate successful Mission implementation

1 There are new initiatives/schemes proposed by the Missions and additional focus areas envisioned to be taken up for implementation; however, even these are to be enabled by the broad governance mechanism already in place.


1. In the case of Missions like the JNNSM and NMEEE, which have more quantifiable targets,

implementation systems/market mechanisms in place and financial allocations undertaken:

For such Missions, which have also achieved greater progress in terms of their schemes being

implemented, the following framework/combination of frameworks was adopted:

a) The targets as stated in the Mission document were compared with their achievements

b) A component/instrument-level tracking was undertaken to examine the progress

achieved

c) The core functions of policy implementation, namely Finance, Policy Administration,

Monitoring, Reporting, Evaluation & Revision and Compliance & Enforcement as per the

Climate Policy Implementation Tracking Framework were tracked, while comparing the

Mission as proposed in the initial document (Mission as Written) with subsequent

implementation (Mission in Practice).

2. In the context of other Missions which have relatively qualitative targets and are yet to advance to a

stage of active of implementation:

Progress was tracked across the functions of policy implementation as indicated above.

The Study team has attempted at covering two aspects of all Missions:

1. Tracking the Mission's progress2. An in-depth evaluation of the progress made by the Mission with the objective of strengthening

its implementation and effectiveness

Tracking the Mission's progress

Information in this regard was collected through a combination of detailed desk research and structured 2interviews with relevant stakeholders . Desk research involved a keen scrutiny of statutory disclosures

routinely published by Ministries, Departments and other government agencies, like the Outcome

Budgets, Results Framework Documents, Outcome Budgets, Demands for Grants, Annual Reports,

reports of Department related Standing Committees, etc. The broad spectrum of stakeholders included

Central and State Government officials, domain experts, academicians, private sector, etc. The Study team

has also conducted interviews with State level Departmental officials to understand the percolation of

the National Missions into the States.

The Study team has approached the tracking of a Mission's progress in two ways:

3

3. Framework and Methodology

2 A complete list of Ministries, government organisations, affiliate institutions and domain experts reached out to for the purpose of this Study is given in the Annexure.

Although tracking the progress achieved by a Mission and evaluating its implementation are often

visualized to be exclusive activities, the inputs required for both were found to be interspersed with one

another throughout the data collection and information gathering activities undertaken by the Study

team. Hence albeit findings on tracking the Missions' progress and their evaluation are provided in

separate sections, information gathering was a collective task.


4

Implementation Evaluation

The objective of the in-depth evaluation of a Mission's implementation is to highlight the barriers that it

could have encountered in achieving its proposed targets. These barriers are analysed in detail in the

context of the core policy implementation functions of Finance, Policy Administration, Monitoring,

Reporting, Evaluation & Revision and Compliance & Enforcement. Although not explicitly reported in

certain Missions (due to the nature of the Mission's instruments and progress), the concluding section

provides an overall snapshot of the progress achieved in the context of these implementation functions.

This section also includes recommendation specific to each Mission, evolved out of the in-depth

evaluation and based on the interviews conducted by the Study team. It seeks to provide insights into the

mechanisms/strategies that could be adopted to enhance the effectiveness of a Mission's

implementation as well as accelerating its progress.


5

4. Key Observations and Policy Concerns in Mission ImplementationRevamping ongoing schemes to meet climate objectives could be the most practical route to

mainstreaming climate initiatives to the nation's development agenda

Analyzing this observation with administrative acumen provides a reality check on the issue of

mainstreaming. Given that climate change is an all-ubiquitous phenomenon with interlinkages in every

sector, it may be far too challenging for developing countries like India to design completely unique

climate-oriented schemes. Instead, a more pragmatic approach would be to mainstream climate change

initiatives into the ongoing development goals through existing programmes and infrastructure.

Similar is the case with the National Missions where conventional development schemes, their financing

and implementation mechanisms are being utilized for their execution. Typical examples on

mainstreaming climate change initiatives with conventional programmes are Jawaharlal Nehru National

Urban Renewal Mission (JnNURM) for several of NMSH schemes or GIM's landscape approach for

afforestation through National Afforestation Programme (NAP), Compensatory Afforestation

Management and Planning Authority (CAMPA), etc. and lastly usage of National Knowledge Network

(NKN) as underlying infrastructure for data sharing and collaboration in the NMSKCC.

Missions are essentially dynamic policies constantly undergoing changes

Several components of some Missions have undergone changes and mid-course corrections while

reaching an active stage of implementation. These could be a consequence of active stakeholder

participation even after the initial Mission document was finalized or the requirements of market

mechanisms which necessitate regulatory and policy amendments. Revision of targets in the JNNSM

under grid connected projects to 100GW has been the consequence of regular review process.

Similarly downsizing of overall NMSA budget and key focus areas to prevent overlaps with ongoing

Departmental schemes is another example of stakeholder consultations and optimizing usage of funds.

Some departures from the initially proposed activities are also observed as a consequence of greater

clarity attained in planning only once the Mission begins to receive exclusive budgetary resources.

This indicates that short term/annual planning, facilitated and stipulated by a fund approval process,

encourages the setting of realistic, achievable and monitorable targets/milestones. In the case of the

NWM, the recent approval of the `Implementation of NWM' as a Central Sector Scheme has resulted in

specific deliverables being defined for the approved annual outlay; a similar effect is expected in the

NMSH, for which a separate scheme is soon to be announced and budgeted for.

Need for greater regulatory environment to enforce compliance across Missions

Most Missions provide policy support to implement programmes through operational and convergence

guidelines and other existing norms. However, there is a lack of Mission-specific mandates to ensure

compliance to norms/benchmarks of standard performance. The Bureau of Energy Efficiency (BEE) in

the case of NMEEE has vested powers to enforce regulations as per the Energy Conservation (EC) Act.

This is an exceptional case where stakeholders can be made to adhere to stringent policies. The clarity in

its corresponding regulatory framework has also enabled considerable progress in select aspects of the

NMEEE. In other cases like the NMSH or GIM, implementation is largely supervised through operational


6

guidelines which are not necessarily binding on stakeholders. Similar is the situation where Mission

programmes are expected to converge with Centrally Sponsored Schemes (CSS) or Flagship programmes

where compliance and enforcement mostly depends on existing frameworks for such programmes.

Coordinated efforts imperative for effective implementation of Missions

All Missions, by virtue of their vast coverage and scope of work, require paramount levels of coordination,

be it between the Central and State government or State and decentralized bodies or even between

co-implementing agencies at any level. Most Missions acknowledge the need for harmonized

implementation of activities. Some of them envisage mechanisms for the same whilst a few others abstain

from doing so. A representative example of coordinated energies being applied at the Central and State

level is the JNNSM and State Solar Policies. Another Mission demanding extreme coordination between

different nodal agencies is the NMSHE which seeks to implement science-based programmes across the

twelve Himalayan States using six task force institutions. The nature of synchronized efforts that is

required in this case is elaborated in Chapter 5.

Designated agencies with exclusive Mission mandates are scarce

Nodal Ministerial Departments have been assigned the roles of spearheading programmes under most

Missions. In essence, this can be inferred as additional responsibility entrusted to Departmental wings

which are already engaged with routine undertakings. For instance, the small team at the DoST has been

coordinating with two Missions, namely the NMSHE and NMSKCC. Given the strength and core

competency of the DoST, it could be very challenging for the Department to focus efforts on climate

change activities under these Missions.


7

5. Results and Findings

Through the implementation of the NAPCC, India attempts to catalyze the balance comme il faut between

her growth objectives and apprehensions over global climate change. The Jawaharlal Nehru National

Solar Mission (JNNSM) under the NAPCC was launched in 2010 with the objective of achieving grid parity

by the year 2022. It aimed at the deployment of 20,000 MW of grid connected and 2,000 MW of off-grid 3solar power during the three phases of its operative period. However, given the progress that has been

achieved thus far in the form of grid-interactive power (3,382.78 MW) and off-grid/captive power

(227.12 MW), the Central Government has raised the target of the JNNSM to 100 GW to be achieved

through grid connected projects, off-grid projects and solar parks by 2022.

At the outset, it appears that India has emerged the latest hub of solar development with a comprehensive

national policy and sound individual State policies. Large capacity allocations under these policies add

credibility to this claim and propel the notion of a successful start. However, moving down the

design-implementation continuum of the policy, several issues emerge and prove to be hurdles in the

successful deployment of the allotted projects. The most conspicuous would be the lack of direct linkage

of the Mission's climate change mitigation objectives and its cumulative installed capacity targets.

However, it is worthwhile to highlight how the Mission initially was propelled by the enabling regulatory

environment and has now catapulted solar power to a position of near economic viability.

In the beginning of 2010, the total installed capacity of solar power in the country was a mere 17.8 MW

which grew to 506.9 MW by March 2012 and to 2.75 GW by July 2014. This whopping leap within a span of

four years can be almost wholly accredited to the launch of the JNNSM.

5.1 Jawaharlal Nehru National Solar Mission

Introduction

Tracking the Mission's Progress

TABLE 5.1: PROGRESS OF THE JNNSM FOR THE FIRST QUARTER OF 2015

Sector Jan - March 2015 Cumulative

(as on 28.2.2015) Target Achievement

Grid Interactive Solar Power(Capacities in MW)

1100 750.77 3382.78

Off-Grid/Captive Power: SPV Systems(Capacities in MW) 60 52.77 227.12

2Solar Water Heating Collectors (million m ) 0.50 0.66 8.76

Sector Achievement

(as on 10.3.2015)Under

MNRE/SECI Through

State Goverments Cumulative

Grid Connected SPV Rooftop Projects(Capacities in MW)

18.299 22.94 41.239

Source: SECI, MNRE and findings from the Study

3 th As recorded by the MNRE as of February 28 , 2015


8

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ure

p

roje

cts

bei

ng

tech

nic

ally

el

igib

le f

or

the

sam

e. M

ost

dev

elo

per

s in

th

e co

un

try

wo

rk w

ith

eit

her

full

or

lim

ited

re

cou

rse

fun

din

g,

wh

ich

in

crea

ses

thei

r fi

nan

cial

ris

k m

anif

old

.

Off

-Ta

ker

Ris

k

Off

-tak

er r

isk

is

the

dec

isiv

e fa

cto

r fr

om

a

pay

men

t se

curi

ty p

ersp

ecti

ve. A

def

ault

in

p

aym

ent c

an m

ake

the

pro

ject

un

real

izab

le

and

co

nce

ivab

ly j

etti

son

th

e d

evel

op

er's

ab

ilit

y t

o c

on

figu

re t

he

liab

ilit

y. A

t p

rese

nt,

al

mo

st a

ll o

f th

e o

ff-t

aker

an

d p

aym

ent

haz

ard

s ar

e li

nk

ed w

ith

th

e St

ate

sola

r p

oli

ces.

Del

ays

in S

ub

sid

y D

isb

urs

emen

tsT

he

MN

RE

, th

rou

gh i

ts o

rder

No

. 5

/34

/30

13

-1

4/R

T, h

as i

nd

icat

ed a

red

uct

ion

in

th

e su

bsi

dy

fo

r 'G

rid

Co

nn

ecte

d R

oo

fto

p a

nd

Sm

all

Sola

r P

ow

er P

lan

ts P

rogr

amm

e', t

hro

ugh

lim

itin

g b

oth

it

s sc

op

e (b

enef

icia

ries

) an

d a

mo

un

t (f

rom

30

%

to 1

5%

). I

t is

im

po

rtan

t to

no

te t

hat

tim

ely

d

isb

urs

em

en

t o

f su

bsi

die

s is

v

ita

l in

th

is

tran

siti

on

pro

cess

an

d i

f n

ot

del

iver

ed,

cou

ld

sign

ific

antl

y a

ffec

t th

e in

stal

lers

' cas

h f

low

s an

d

wo

rkin

g ca

pit

al e

xpen

ses.

Th

e su

bsi

die

s cr

eate

an

exp

ecta

tio

n a

mo

ngs

t th

e b

enef

icia

ries

wh

ich

if

n

ot

dis

bu

rsed

, co

uld

le

ad

to

a st

agn

ated

m

ark

et a

s o

bse

rved

in th

e p

ast.

It w

ou

ld b

e b

enef

icia

l fo

r th

e se

gmen

t if

th

e M

NR

E

cou

ld

cle

ar

all

a

pp

rov

ed

su

bsi

dy

ap

pli

cati

on

s an

d e

nsu

re t

imel

y d

isb

urs

emen

t o

f fu

ture

ap

pli

cati

on

s.

Alt

ern

ativ

ely,

th

e m

ark

et

can

be

bet

ter

serv

ed b

y h

avin

g re

alis

tic

feed

-in

ta

riff

s in

stea

d o

f cap

ital

su

bsi

die

s.

Po

or

Fin

an

cia

l Sta

tus

of D

ISC

OM

sA

nu

mb

er o

f Sta

te D

ISC

OM

S ar

e se

vere

ly c

ash

st

rap

pe

d

an

d

fin

an

cia

lly

st

rick

en

; th

is

adve

rsel

y a

ffec

ts t

he

stri

ct e

nfo

rcem

ent

of t

he

sola

r R

PO

. H

ence

, th

e li

qu

idit

y o

f D

ISC

OM

S b

eco

mes

a

key

co

nsi

der

atio

n

for

ensu

rin

g R

PO

co

mp

lian

ce.

Th

e St

ate

Uti

liti

es

hav

e d

elay

ed p

aym

ents

eve

n a

t th

e A

vera

ge P

oo

led

P

ow

er C

ost

(A

PP

C)

rate

, w

her

ein

pay

men

ts

wer

e m

ade

afte

r 9

mo

nth

s o

f in

stal

lati

on

of

a so

lar

po

wer

p

lan

t re

gist

ered

u

nd

er

RE

C

mec

han

ism

. T

his

is

sim

ilar

to

th

e si

tuat

ion

fa

ced

by

the

win

d s

ecto

r. D

ou

bts

rem

ain

ab

ou

t th

e v

iab

ilit

y o

f so

lar

ener

gy p

roje

cts

at s

uch

lo

w

pri

ces.

M

ost

P

PAs

un

der

St

ate

sola

r p

oli

cies

are

sig

ned

wit

h t

he

DIS

CO

Ms

and

h

ence

th

e fi

nan

cial

hea

lth

of t

hes

e co

mp

anie

s b

eco

mes

cri

tica

l to

mak

ing

the

PPA

ban

kab

le.

Th

us,

pro

ject

dev

elo

per

s an

tici

pat

e d

iffi

cult

y

in o

bta

inin

g fi

nan

ces

for

thei

r p

roje

cts

in t

he

Stat

e.

Co

re P

oli

cy

Fu

nct

ion

sU

tili

ty S

cale

Pro

ject

sG

rid

Co

nn

ect

ed

So

lar

Ro

oft

op

In

sta

lla

tio

ns

an

d O

ff-G

rid

/C

ap

tiv

e P

ow

er

Ge

ne

rati

on

P

roje

cts

reg

iste

red

un

de

r th

e R

EC

Me

cha

nis

m

Fin

an

ce

Fin

anci

al r

estr

uct

uri

ng

of

the

uti

liti

es o

wn

ed

by

th

e St

ate

Go

vern

men

ts i

s n

eces

sary

fo

r

add

ress

ing

the

liq

uid

ity

sta

tus

of t

he

DIS

CO

M.

Stat

es l

ike

Har

yan

a, R

ajas

than

, T

amil

Nad

u

and

U

ttar

P

rad

esh

h

ave

alre

ady

st

arte

d

add

ress

ing

this

iss

ue

(Kri

thik

a &

M

ahaj

an,

2014

).

Po

licy

Ad

min

istr

ati

on

Cle

ar

Div

isio

n i

n R

ole

s a

nd

Res

po

nsi

bil

itie

s

Th

e

Ce

ntr

al

an

d

Sta

te

Ele

ctri

city

Reg

ula

tory

Co

mm

issi

on

s m

ust

ass

ert

thei

r ro

les

as i

nd

epen

den

t re

gula

tors

wh

o

en

su

re

tha

t a

re

gu

lato

ry

fram

ewo

rk

is

crea

ted

w

her

eby

th

e

Mis

sio

n i

s im

ple

men

ted

in

let

ter

and

spir

it.

It

has

b

een

o

bse

rved

th

at

in

Stat

es w

her

e th

e E

lect

rici

ty R

egu

lato

ry

Co

mm

issi

on

s p

lay

an

act

ive

role

an

d

ensu

re t

he

pro

mo

tio

n o

f re

new

able

s,

the

inve

sto

rs r

esp

on

d a

pp

rop

riat

ely

to

the

po

licy

sig

nal

s. C

om

mo

n f

eed

bac

k

stat

ed t

he

vie

ws

exp

ress

ed b

y S

tate

DIS

CO

Ms

are

oft

en g

iven

a w

eigh

tage

that

re

sult

s in

o

ne-

sid

ed

regu

lato

ry

de

cis

ion

s

th

at

h

am

pe

r

th

e

imp

lem

enta

tio

n o

f th

e so

lar

po

licy

in

the

lon

g te

rm.

Am

big

uit

y in

Ro

ad

ma

p fo

r A

chie

vin

g T

arg

ets

Th

e M

issi

on

sh

ou

ld p

resc

rib

e an

un

amb

igu

ou

s

road

map

for

all o

f its

so

lar

app

lica

tio

n s

egm

ents

(fo

r ex

amp

le;

sola

r m

anu

fact

uri

ng

faci

liti

es,

sola

r p

ark

s,

sola

r th

erm

al

app

lica

tio

ns

etc.

).

As

of

no

w, i

t ca

n b

e se

en t

hat

th

e st

rate

gies

fo

r

rea

liz

ing

th

e

targ

ets

fo

r ro

oft

op

so

lar

inst

alla

tio

ns

are

bei

ng

sub

sum

ed

un

der

th

e

me

asu

res

for

pro

mo

tin

g

gri

d-c

on

ne

cte

d

gro

un

d-m

ou

nte

d s

yste

ms.

Reg

ula

tory

Pri

cin

g R

isk

s

Th

e m

ajo

r ri

sks

face

d b

y th

ese

pro

ject

s ar

e th

e

dif

ficu

ltie

s in

p

rocu

rin

g fi

nan

cin

g fo

r th

e

pro

ject

s th

rou

gh R

EC

ro

ute

, h

igh

min

imu

m

pri

ce o

f R

EC

s an

d r

egu

lato

ry p

rici

ng

risk

s

(reg

ula

tors

co

uld

cau

se s

ud

den

ch

ange

s in

the

RE

C p

rici

ng

stru

ctu

res)

.

No

tin

g

tha

t th

e

ma

jor

rea

son

fo

r th

e

un

enth

usi

asti

c d

eman

d i

s th

e p

rice

of

the

RE

Cs

(th

e so

lar

RE

Cs

had

a f

loo

r p

rice

of

Rs.

9

.3/

un

it

an

d

forb

ea

ran

ce

pri

ce

of

Rs.

13

.4/u

nit

), t

he

Foru

m o

f Reg

ula

tors

(Fo

R)

inv

ite

d

a

co

mp

reh

en

siv

e

stu

dy

a

nd

reco

mm

end

atio

ns

on

th

e R

EC

mar

ket

at

thei

r st

41

mee

tin

g (

.

Mo

st c

erti

fica

tes

are

trad

ed a

t th

e fl

oo

r p

rice

wh

ich

is

m

uch

h

igh

er

than

th

e cu

rren

t

aver

age

leve

lise

d c

ost

of

elec

tric

ity

(L

CO

E)

of

sola

r en

ergy

(in

th

e ra

nge

of

Rs.

7-8

per

un

it

for

uti

lity

sc

ale

sy

ste

ms)

. H

en

ce

it

is

eco

no

mic

al f

or

dev

elo

per

s to

pro

du

ce f

rom

thei

r o

wn

so

lar

po

wer

pla

nts

.

Foru

m o

f R

egu

lato

rs,

20

14

)

9

TA

BL

E 5

.2 (

con

tin

ue

d)


Co

re P

oli

cy

Fu

nct

ion

sU

tili

ty S

cale

Pro

ject

sG

rid

Co

nn

ect

ed

So

lar

Ro

oft

op

In

sta

lla

tio

ns

an

d O

ff-G

rid

/C

ap

tiv

e P

ow

er

Ge

ne

rati

on

P

roje

cts

reg

iste

red

un

de

r th

e R

EC

Me

cha

nis

m

Mo

nit

ori

ng

,

Re

po

rtin

g a

nd

Re

vis

ion

La

nd

Acq

uis

itio

n

Fo

r so

lar

po

wer

p

roje

cts

wit

h

sho

rt

con

tro

l p

erio

ds,

a m

ajo

r p

rob

lem

th

at

dev

elo

per

s fa

ce w

ou

ld b

e th

e ac

qu

isit

ion

of

lan

d a

nd

ass

essm

ent

of

the

via

bil

ity

of

the

evac

uat

ion

in

fras

tru

ctu

re. A

cco

rdin

g

to i

nd

ust

ry e

stim

ates

, it

tak

es a

bo

ut

on

e

year

fo

r th

e co

mp

leti

on

of

the

pro

cess

of

lan

d a

cqu

isit

ion

. Th

e lo

ad f

low

stu

dy

can

be

c

on

du

cte

d

(b

y

the

s

ys

tem

stu

die

s w

ing

in

th

e

Tra

nsm

issi

on

Lic

en

se

e/

Dis

trib

uti

on

L

ice

ns

ee

's

Tra

nsm

issi

on

n

etw

ork

) o

nly

o

nce

th

e

lan

d i

s id

enti

fied

. G

iven

th

e p

rep

arat

ory

acti

vit

ies

invo

lved

in

th

e co

mm

issi

on

ing

of

a so

lar

po

wer

pla

nt

and

eva

cuat

ion

syst

em

, a

n

exte

nsi

on

in

th

e

con

tro

l

per

iod

s p

rov

ided

no

w b

y t

he

Mis

sio

n, i

s

anti

cip

ated

.

Sta

keh

old

er E

ng

ag

emen

t

An

oth

er r

evis

ion

in

th

e o

ffin

g, b

ased

on

mo

nit

ori

ng

a

nd

re

po

rtin

g,

is

the

pro

vis

ion

o

f a

fo

rm

al

sp

ac

e

for

sta

ke

ho

lde

r

pa

rti

cip

ati

on

, w

hic

h

ha

s

thu

s

far

b

ee

n

ina

de

qu

ate

.

Eve

n t

ho

ugh

co

nsi

der

able

eff

ort

has

bee

n

tak

en t

o i

nte

grat

e st

akeh

old

er f

eed

bac

k,

the

rati

on

ale

beh

ind

dis

mis

sin

g an

y in

pu

t

pro

vid

ed b

y v

ario

us

stak

eho

lder

s h

as n

ot

bee

n tr

ansp

aren

t.

Sim

pli

fica

tio

n o

f Ad

min

istr

ati

ve H

urd

les

For

the

rece

ntl

y r

enew

ed M

NR

E O

ff–G

rid

an

d

Dec

entr

aliz

ed

Sola

r A

pp

lica

tio

ns

Sch

eme

for

smal

l sc

ale

grid

-co

nn

ecte

d s

ola

r P

V s

yste

ms,

a

dis

tin

ctio

n h

as b

een

mad

e b

etw

een

pro

ject

s o

f 50

kW

an

d b

elo

w a

nd

th

ose

of

hig

her

cap

acit

y. F

or

pro

ject

s o

f 5

0 k

W a

nd

bel

ow

, th

e M

NR

E s

ub

sid

y

wil

l w

ork

in

a “

Pro

gram

me

Mo

de”

wh

ereb

y t

he

no

dal

age

ncy

wil

l p

roce

ss t

he

app

lica

tio

ns

and

dis

bu

rse

the

sub

sid

y t

o t

he

ben

efic

iari

es o

ut

of

bu

lk f

un

din

g tr

ansf

ers

fro

m M

NR

E (

MN

RE

- N

o.

30

/11

/20

12

-20

13

/NSM

, 20

14

). T

he

app

lica

tio

n

pro

cess

is

si

mp

lifi

ed

and

n

o

det

aile

d

pro

ject

rep

ort

is n

eed

ed. F

or

sola

r sy

stem

s o

f m

ore

th

an

50

kW

th

e “P

roje

ct M

od

e” w

ill

app

ly,

wh

ereb

y a

det

aile

d p

roje

ct r

epo

rt h

as t

o b

e se

nt

to M

NR

E a

s

par

t o

f th

e su

bsi

dy

ap

pro

val

for

each

pro

ject

.

Th

is i

s a

goo

d b

egin

nin

g in

mak

ing

the

sub

sid

y

app

lica

tio

n p

roce

ss m

ore

tra

nsp

aren

t an

d l

ess

tim

e co

nsu

min

g.

Rev

isio

n o

f R

EC

Pri

ces

Th

e R

EC

flo

or

and

forb

eara

nce

pri

ces

hav

e

thu

s b

een

mo

dif

ied

to

Rs.

3,5

00

/RE

C a

nd

Rs.

5,8

00

/RE

C r

esp

ecti

vely

(b

ased

on

th

e

FoR

rep

ort

). A

vin

tage

mu

ltip

lier

has

als

o

bee

n i

ntr

od

uce

d f

or

old

pro

ject

s w

hic

h

hav

e al

read

y r

egis

tere

d t

hei

r ce

rtif

icat

es

and

are

yet

to s

ell t

hem

in th

e ex

chan

ges.

Rep

ort

ing

of

RP

O C

om

pli

an

ce o

r L

ack

Th

ereo

f

Th

e St

ate

no

dal

ag

enci

es

(SN

As)

m

ust

reso

lve

to m

ain

tain

co

nsi

sten

t an

d t

imel

y

rep

ort

ing

of

RP

O c

om

pli

ance

to

SE

RC

s.

Th

is

wo

uld

re

qu

ire

con

stan

t in

terf

ace

be

twe

en

th

e

SN

A

an

d

the

o

bli

ga

ted

enti

ties

, an

d t

he

SNA

an

d S

tate

Ele

ctri

city

Reg

ula

tory

Co

mm

issi

on

.

10

TA

BL

E 5

.2 (

con

tin

ue

d)


11

TA

BL

E 5

.2 (

con

clu

de

d)

Co

re P

oli

cy

Fu

nct

ion

sU

tili

ty S

cale

Pro

ject

sG

rid

Co

nn

ect

ed

So

lar

Ro

oft

op

In

sta

lla

tio

ns

an

d O

ff-G

rid

/C

ap

tiv

e P

ow

er

Ge

ne

rati

on

P

roje

cts

reg

iste

red

un

de

r th

e R

EC

Me

cha

nis

m

Co

mp

lia

nce

an

d

En

forc

em

en

t

RP

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ompl

ian

ce

Th

e P

has

e 1

do

cum

ent

of

the

JNN

SM

focu

sed

on

tw

o p

rim

ary

in

cen

tive

s fo

r

fast

-tra

ckin

g th

e d

eplo

ym

ent

of

sola

r

po

we

r:

fee

d-i

n

tari

ffs

an

d

RP

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ile

the

feed

-in

-tar

iffs

in

cen

tiv

ized

the

pla

yers

in t

he

sect

or

to s

et u

p s

ola

r

po

wer

pla

nts

, th

e R

PO

bas

ed a

pp

roac

h

has

no

t b

een

cap

ital

ized

to

its

full

est

as

seen

eve

n i

n t

he

case

of

Tam

il N

adu

.

Th

e

rec

en

t a

me

nd

me

nts

in

th

e

Ele

ctri

city

Act

, 20

03

aim

to

str

engt

hen

the

RP

O m

ech

anis

m a

nd

en

suri

ng

its

enfo

rcem

ent.

Th

e

ne

ce

ssit

y

of

en

suri

ng

R

PO

com

pli

ance

by

th

e o

bli

gate

d e

nti

ties

and

its

str

inge

nt

enfo

rcem

ent

by

th

e

auth

ori

ties

is

a

key

p

rio

rity

fo

r th

e

sola

r en

ergy

sec

tor.

Pro

visi

on o

f Net

-Met

erin

g F

acil

ity

Cu

rren

tly

th

e p

rov

isio

n a

nd

en

forc

emen

t o

f th

e

net

-met

erin

g fa

cili

ty f

or

roo

fto

p i

nst

alla

tio

ns

is

un

der

th

e p

urv

iew

of

the

ind

ivid

ual

Sta

te s

ola

r

po

lici

es. I

nst

ead

, it

is s

ugg

este

d t

hat

th

e M

NR

E

issu

e

gu

ide

lin

es

on

th

e

sam

e

to

en

sure

acce

ssib

ilit

y

to

all

elec

tric

ity

p

rosu

mer

s b

y

enfo

rcin

g th

is fa

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ty.

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forc

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Pen

alti

es f

or N

on-C

ompl

ian

ce o

f

RP

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The

su

stai

nabl

e de

man

d fo

r so

lar

RE

Cs

is

hea

vil

y

con

tin

gen

t o

n

the

enfo

rcem

ent

of

the

RP

O,

ther

eby

p

rom

oti

ng

In

dia

's

rene

wab

le e

nerg

y in

tere

sts

for

the

long

ter

m.

As

sele

ctiv

e en

forc

emen

t of

the

RP

O w

ould

onl

y

wea

ken

the

cred

ibil

ity

of t

he s

olar

RE

C m

arke

t,

it

is

nece

ssar

y th

at

a st

ring

ent

com

plia

nce

stru

ctur

e is

en

forc

ed

thro

ugho

ut

the

coun

try.

Sta

te

reg

ula

tors

co

uld

le

arn

fr

om

th

ese

exam

ple

s o

f pen

aliz

ing

def

ault

ers

to fa

cili

tate

stri

cte

r e

nfo

rce

me

nt

of

RP

O

targ

ets

.

On

ce D

ISC

OM

S st

art

ach

iev

ingt

hei

r ta

rget

s,

the

dem

and

fo

r th

ese

cert

ific

ates

is

exp

ecte

d

to in

crea

se.


12

Key Observations

1. Stakeholder support: The market for solar energy has become more sophisticated and players

have come forward to unleash its potential, thereby necessitating improved coordination in

garnering stakeholder action and support.

2. Infrastructural hurdles: Developers face various kinds of infrastructural hurdles during the

course of project development. Acquiring clearances for converting land use to accommodate solar

project development is a major hindrance as developers encounter claims from other parties over

government-allocated land. Difficulties pertaining to obtaining Right-of-Way, power evacuation

facilities and transmission lines to substations are another major issue. Lastly, there is an evident

lack of availability of skilled labor acting as a deterrent to large-scale project development.

3. Issues regarding obtaining finance: The prevailing interest rate in India is around 13% which is

high and dissuades project development, principally because solar power development requires

large upfront capital. Moreover, most Indian banks are reaching their sectoral limits for the

renewable energy sector and there is lack of availability of non-recourse funding.

4. RPO compliance: Uncertainties surrounding the regulatory environment and enforcement

mechanisms tend to reduce investor confidence. Hence the REC mechanism can be fully functional

only if the RPO compliance is duly enforced and the mechanisms for trading are detailed sans

ambiguity.

5. Capacity building for the financial community: Banks and financial institutions need to increase

information sharing through networking and also initiate capacity building activities within the

financial community. The MNRE has taken the first steps forward in terms of creating awareness

and disseminating information. However this needs to be taken forward to ensure that projects

receive adequate and affordable funding.

A long term plan for the execution of the Mission is critical to ensure the progress of the solar sector.

All stakeholders must be made aware of such a roadmap and it must be inclusive of the entire supply

chain. Capacity building of the labor force and mechanisms to obtain sufficient and customized resources

(financial and otherwise) must be clearly outlined as well.


The National Mission for Enhanced Energy 6

Efficiency (NMEEE) is designed to ensure that

energy efficiency (EE) is promoted using various

approaches and incentives in the context of

providing increasing energy to meet the demands

of a growing population. Specifically, the Mission

seeks to create, strengthen and sustain the

Rs. 74,000 Crore-market for EE. This is envisaged

by (a) providing a conducive and regulatory

policy regime and (b) fostering innovative and

sustainable business models for the sector.

5.2 National Mission for Enhanced Energy Efficiency

The Mission spells out four initiatives to enhance

EE, in addition to the programmes that are

already being pursued nationally. These include:

1. Perform, Achieve & Trade (PAT), the flagship

initiative, which is a market based

mechanism to enhance cost effectiveness

of improvements in EE in large, energy

intensive industries, by certifying energy

savings, which can then be voluntarily

traded.

2. Market Transformation for Energy

Efficiency (MTEE) , which includes

innovative measures to accelerate

shift to energy efficient appliances in

designated sectors, by making them more

affordable.

13

Introduction

6 Approved by the Union Cabinet in June 2010 and developed by the Ministry of Power (MoP) and the Bureau of Energy Efficiency (BEE)

Salient Features of Mission Progress

a) Frameworks outlining legal, regulatory,

administrative, institutional design and

operations are well defined.

b) The Bureau of Energy Efficiency (BEE) has

exhibited pro-activeness and simplified

processes to facilitate involvement of multiple

stakeholders such as DCs, SDAs, AEAs and

FIs through workshops and trainings.

Moreover, modifications suggested by

stakeholders have been kept in mind and

mid-course changes in scheme design have

been taken.

c) There is clarity in role assignments of various

stakeholders. This is critical, as it sets the stage

for effective compliance, due diligence and an

objective MRV process.

d) Groundwork in the form of detailed baseline

evaluations to feed into the design of both the

PAT and the DELP has ensured robust design.

e) Mechanisms (preparation of compendiums &

case studies, conferences, websites) to share

best case practices between DCs have been

initiated.

f) Resources have been spent to stimulate

interest among FIs and ESCOs regarding

funding EE projects.

g) Both the BYL and DELF have stirred the market

by making energy efficient products cheaper.


Energy Efficiency (EE) refers to any process,

technique or equipment that helps to achieve

reduction in energy consumption while

performing an operation, while achieving the

same or better level of output.

3. Energy Efficiency Financing Platform

(EEFP) and Framework for Energy Efficient

Economic Development (FEEED) leverage

fiscal instruments that can help finance

Demand Side Management (DSM)

programmes.

PAT is a market-based mechanism that seeks to

improve energy efficiency in nine energy

intensive large industries and sectors by allowing

voluntary trading of energy savings through

Energy Savings Certificates (henceforth ESCerts).

At the outset, it is important to state that the PAT

is a unique policy instrument in that the overall

objective lies in improving the efficiency of the

production process (i.e. systemic & structural

changes) in order to achieve the ultimate target of 8energy savings . This is different from other

emission reduction directives, which seek to

re d u c e a b s o l u te n u m b e r o f e m i s s i o n

consumption units, which can be oft-affected by

political and commercial factors.

Market Transformation for Energy Efficiency

(MTEE) seeks to accelerate shift to energy

efficient appliances in designated sectors

through innovative measures to make these

products more affordable. In an attempt to

overcome the cost bias to initiate a market

transformation towards preferential adoption of

energy efficient products and technologies, the

MTEE initially proposed implementing national 9energy efficiency CDM roadmap .

14

7Tracking the Mission's Progress

Perform, Achieve & Trade

Market Transformation for Energy

Efficiency

PAT Scheme: Key take-aways

Recommendations

a) Existing legal frameworks including the EC Act

and its subsequent rules and regulations have

collectively ensured a robust framework.

b) This clearly defines stakeholder roles and

responsibilities, coordination and hence a

good edifice for a sound institutional structure

and scheme design has been ensured.

c) Wherever additional training of personnel in

designated agencies is required for effective

discharge of statutory responsibilities, the BEE

through its various programmes has ensured

this and provided support.

d) DCs' commitment to EE and achievement of

PAT targets is crucial. To ensure this, the BEE

has made necessary formats for form filling

and submission simple. Moreover, efforts have

been made to facilitate experience and best

practices sharing among DCs.

e) Empanelment process of AEAs and AEA firms

has been simplified.

f) Check verifications have been put in place to

ensure that DCs do not influence AEA's MRV

process.

g) The BEE has already commenced preparatory

activities for deepening the PAT scheme under

PAT cycle 2. Study on potential for deepening

has been commissioned for Iron & Steel,

Textile, Pulp & Paper and Cement sectors.

a) The BEE could consider placing potential AEAs

in audit projects in other sectors such as SMEs,

to enhance understanding, expertise and

competency of AEAs. Expert agencies are to be

exhorted to take interest in the energy

audit space, and provide internships &

demonstration projects experience for AEAs.

b) The BEE could devise a system to provide early

market signals of EScerts. This can be done

post the MRV process is complete, and before

the actual trading begins. This can promote

better trading.


7 Information has been captured up to March 2015 for this purpose.

8 Phase I of the PAT (2011/12 to 2014/15) is likely to save about 6.6 mtoe (million tons of oil equivalent) of energy andthe co-benefit will be a reduction of about 25 mtoe.Considering that the cost of 1 toe is about Rs.10,154 (BEE,January 2015), energy savings will amount to Rs. 6782 crores.PAT Phase II is expected to start in March 2015.

9 The public sector leadership and involvement was to betapped for aggregating projects and programmes of activityfor household lighting, municipal & agriculture demand sidemanagement, Small & Medium Enterprises (SME) sector,commercial buildings sector and distribution transformers.

There is a need for strategic policy and regulatory

frameworks to catalyse investments into EE,

given the huge financial requirements posed by

low carbon strategies, which cannot be sourced

through the public sector alone. In this context,

two initiatives have been envisaged under the

Mission, viz., the Energy Efficiency Financing

Platform (EEEP) and the Framework for Energy 10

Efficiency Economic Development (FEEED) .

Both initiatives specifically seek to (a) address

risks and barriers faced/perceived by FIs and

(b) engage Participating Financial Institutions

(PFIs) and commercial financial institutions and

build their capacity to finance EE projects on a

commercially sustainable basis.

Energy Efficiency Financing Platform (EEFP):

Initiatives under the EEFP have focused on

stimulating FIs to finance energy efficient

projects and to stimulate States to engage with

ESCOs through designated agencies and utilities.

Framework for Energy Efficiency Economic

Development (FEEED): Two initiatives have been

created, viz., the Partial Risk Guarantee Fund for

Energy Efficiency (PRGFEE) and Venture Capital

Fund for Energy Efficiency (VCFEE).

a) Partial Risk Guarantee Fund for Energy

Efficiency (PRGFEE)

PRGFEE is a risk sharing mechanism to

provide commercial banks with a partial

coverage of risk involved in extending loans

for EE projects. Eligible projects for which the

PFI can apply for a guarantee could be credit

facilities extended to ESCOs for EE projects.

Sectors in the mandate of PRGFEE include

government buildings, municipalities, SMEs

and industries. It is to be noted that the PRGFEE

is yet to take off.

10 It is to be noted that under both these initiatives, frameworkshave just been put in place, and a few basic activities to initiatethe instruments have been undertaken. Therefore issues suchas governance & policy, compliance, monitoring and evaluationare yet to be decided.

15

Given the cessation of CDM in 2012, there are

only two programmes which fall under the

MTEE – the Bachat Lamp Yojana (BLY) and the

Super-Efficient Equipment Programme (SEEP).

With the cessation of CDM, BYL stands closed and

Energy Efficiency Services Limited (EESL)

started Light Emitting Diode (LED) sales under

the Domestic Efficient Lighting Programme

(DELP) in 2014. In the future it is proposed to

provide support to the Rural Electrification

Corporation (REC), using the BLY structure.

The BEE will frame technical specification &

monitoring/verification of the energy savings

from the LED bulbs distributed under the Rajiv

Gandhi Grameen Vidyutikaran Yojana (RGGVY) to

BPL households.

MTEE: Key take-aways and

Recommendations

a) Introduction of Standard Offer Programmes

(SOP) is an innovative approach to bring in EE

into DSM.

b) The DELP exhibits clear administrative

s t r u c t u r e , p r o c e s s m o d a l i t i e s a n d

operationalisation framework.

c) The BLY and DELP have transformed the

market for CFL and LED respectively by

lowering prices. Further success of the

programme depends on cost reduction in the

price of LED (to at least if not lowers than

Rs. 100).

d) It is too early to comment on process

modalities, monitoring & compliance issues.

e) The modalities for SEEP are in place, and the

first appliance (ceiling fan) is set to hit the

market soon.

f) Well-conceived mass media awareness &

adoption campaigns in local languages

to be designed.

Building a Sustainable Financial System


16

The NMEEE is predicted to help achieve avoided

capacity addition of 19,598 MW, attain fuel

savings of 23 million tons per year and reduce

greenhouse gases by 98.55 million tonnes per

year. It is proposed that this will be attained

through objectives and deliverables across two

components – industry (PAT scheme) and

appliances (DELP and SEEP). Across both these

instruments, several positives emerge, which

have been enumerated earlier.

There is much to look forward to under the

NMEEE – Will PAT cycle I will be a compliance

market? How will the PAT be expanded – will it be

broadened (bring more DCs under the ambit) or

deepened (reducing energy consumption

thresholds)? Will the price of LEDs fall further?

How will the SEEP programme take off? Will the

exhorting of ESCOs and FIs to take up EE projects

be successful? Having evolved through complex

challenges in putting place the framework for

these various instruments, the role of the BEE and

the MoP and the future success of these

programmes will depend on continuously

reviewing and consolidating its intrinsic

mechanisms, and whether or not they can be

adapted to changes in economic and political

scenarios.

b) Venture Capital Fund for Energy Efficiency

(VCFEE)

VCFEE is a fund that provides risk capital to

support EE investments in new technologies,

goods and services. It helps in creating a

volume in EE deal flow by the fund manager

t h ro u g h a dve r t i s i n g a n d s o l i c i t i n g

opportunities in the EE area. ESCOs and

companies that plan to undertake EE projects

in the performance-contracting mode are the

key beneficiaries. The support under VCFEE is

limited to government buildings and

municipalities. It is expected that the VCFEE

will be initiated by April-May 2015.

Key take-aways: EEFP and FEEED

a) Consistent efforts have been taken to stimulate

take-up of EE projects by ESCOs and States by

providing best-case practices; a dossier of

energy efficient projects has been prepared in

this context.

b) Training and engagement with FIs and banks

has resulted in agreements being signed with

several financiers.

c) Efforts are under way to bring more banks

under the fold of the Programme.

d) FEEED - frameworks have been put in place for

both the PRGFEE and VCFEE but full-fledged

activities are yet to take off.

Mission Summary


17

The National Mission on Sustainable Habitat

(NMSH) envisages a framework to build urban

resilience to climate change, by integrating

adaptation and mitigation aspects into the

urban planning process. It outlines the need

for addressing system preparedness and

building resilient urban infrastructure through

appropriate capacity building and regulatory

re-alignment. While the Mission does not contain

specific targets, it outlines strategies with

concomitant requirements for technical capacity

building and institutional strengthening.

The implementation strategies of the Mission 11span across six sectors : this heightens the need

for coordination between various government

departments and agencies overseeing ongoing

schemes and formulating sector-specific policies,

to adopt an integrated approach towards the

implementation of the NMSH.

The NMSH, approved in early 2010, is structured

into the following key components:

1. Development of Sustainable Habitat

Standards – guidelines for each sector to

enable mainstreaming of climate change

concerns into urban planning2. Incorporation of Sustainable Habitat

Standards into City Development Plans

(CDPs)3. Complementary Actions – demonstration

projects , outreach, dissemination

and research & development (R&D)

activities for facilitating the aforesaid

mainstreaming4. Capacity Building activities

12A snapshot of the Mission's key dimensions is

briefly described below.

Introduction

Key Observations

a) Mission guidelines drafted: They have been

circulated among the States to be adopted in

their respective urban local planning

processes. Other components of NMSH are yet

to be undertaken on a full-fledged basis.

b) Mainstreaming starts with mandate:

With the JnNURM being succeeded by new

flagship initiatives for urban development and

renewal by the MoUD, the attainment of NMSH

objectives would have to be planned in the

wake of relevant schemes currently under

formulation. Climate change aspects have to be

a part of the original mandate of any flagship

initiative, in order to be measured and

evaluated.

c) Critical role of State Governments:

The Mission is significantly reliant upon State

legislative amendments that are key

prerequisites for achieving substantial

progress in its objectives. While the Ministry of

U r b a n D eve l o p m e n t ( M o U D ) i s t h e

nodal agency and has an advisory role, the

NMSH objectives can be realised only with

active cooperation of the States.

d) C o o r d i n a t i o n i s k e y t o a d d r e s s

multi-sectoral linkages inherent in urban

planning: This necessitates coordination and

policy synchronisation between various

departments overseeing ongoing schemes

and formulating sector-specific policies, to

adopt an integrated approach towards Mission

implementation.

5.3 National Mission on Sustainable Habitat



11 Energy Efficiency, Urban Transport, Water Supply andSewerage, Municipal Solid Waste Management, Urban StormWater Management and Urban Planning

12 Captured up to March 2015

Fin

an

ceP

oli

cy A

dm

inis

tra

tio

n

1.

Th

e to

tal o

utl

ay p

rop

ose

d fo

r N

MSH

was

aro

un

d R

s. 5

4,2

00

Cro

res

wh

ile

the

Tw

elft

h P

lan

Per

iod

all

oca

tio

n is

Rs.

95

0 C

rore

s.1

3

2.

Bu

dge

ts w

ere

rev

ised

do

wn

war

d d

uri

ng

the

init

ial

year

sb

ecau

se m

ost

of

the

NM

SH

acti

vit

ies

wer

e to

be

fin

ance

d th

rou

gh o

ngo

ing

JnN

UR

M s

chem

es.

3.

Eve

n d

uri

ng

thes

e in

itia

l ye

ars,

th

ere

has

no

t b

een

an

y e

xclu

sive

bu

dge

t al

loca

tio

n a

nd

uti

liza

tio

n t

hro

ugh

th

e Jn

NU

RM

to

war

ds

the

Mis

sio

n, g

iven

th

e p

re-d

eter

min

ed m

and

ate

of t

he

on

goin

g sc

hem

es.

4.

Ho

wev

er, o

bse

rvin

g th

e `r

enew

ed in

tere

st &

vis

ion

of

(th

e) n

ew g

over

nm

ent

on

Sa

nit

ati

on

14

an

d E

nvi

ron

men

t p

rote

ctio

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, th

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oU

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tate

d i

n D

ecem

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20

14

th

at a

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sh

sch

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un

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the

NM

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ld b

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d.

5.

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h t

he

JnN

UR

M b

ein

g p

has

ed o

ut,

it

is e

xpec

ted

th

at t

he

road

map

fo

r ab

sorb

ing

the

NM

SH m

and

ate

(an

d c

on

seq

uen

tly,

th

e p

rogr

amm

ing

of

fun

ds)

wil

l b

e cl

arif

ied

th

rou

gh

the

up

com

ing

EF

C a

nd

lau

nch

of

fres

h i

nit

iati

ves

lik

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e A

MR

UT,

SC

I an

d H

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AY

by

the

Mo

UD

.

15

1.

Th

e M

oU

D is

th

e n

od

al M

inis

try

an

d t

ask

ed w

ith

mo

nit

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and

su

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the

Stat

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Ap

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om

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.O

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tec

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div

isio

ns

lik

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e C

entr

al P

ub

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Dep

artm

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(CP

WD

),

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tral

Pu

bli

c H

ealt

h &

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vir

on

men

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isat

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(C

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To

wn

an

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ntr

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lan

nin

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rgan

isat

ion

(T

CP

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and

th

e In

stit

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of

Urb

an

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nsp

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(IU

T),

are

key

lin

ks

to th

e M

issi

on

's s

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3.

Th

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tor,

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bli

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(M

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is t

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de

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sio

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irec

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wit

h te

chn

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ass

ista

nce

pro

vid

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y th

e N

MSH

Cel

l, h

ead

ed1

6b

y th

e D

epu

ty A

dv

iso

r (C

PH

EE

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.4.

Th

e N

MSH

gu

idel

ines

are

to

be

inco

rpo

rate

d i

nto

th

e u

rban

lo

cal

pla

nn

ing

pro

cess

th

rou

gh t

he

CD

Ps

adh

erin

g to

th

e p

resc

rib

ed s

ecto

ral

no

rms.

Th

is i

s

also

a p

rere

qu

isit

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r o

bta

inin

g p

roje

ct a

pp

rova

l fo

r fu

nd

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5.

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an

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nal

Dev

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pm

ent P

lan

s Fo

rmu

lati

on

an

d Im

ple

men

tati

on

(UR

DP

FI)

(F

inal

UR

DP

FI

Gu

idel

ines

-20

14

) ar

e al

so d

iscu

ssed

as

par

t o

f th

e

NM

SH s

trat

egie

s fo

r th

e U

rban

Pla

nn

ing

sect

or.

Mo

nit

ori

ng

, Re

po

rtin

g, E

va

lua

tio

n &

Re

vis

ion

C

om

pli

an

ce &

En

forc

em

en

t

1.

Th

is is

to b

e u

nd

erta

ken

by

the

PH

E D

ivis

ion

(M

oU

D)

and

the

CP

HE

EO

.

2.

A

web

-en

able

d

Pro

gram

me

Mo

nit

ori

ng

and

E

valu

atin

g Sy

stem

(P

ME

S)

has

b

een

pro

po

sed

fo

r o

nli

ne

mo

nit

ori

ng

and

tr

ack

ing

of

ph

ysic

al

and

fi

nan

cial

p

rogr

ess;

ho

wev

er, t

his

is y

et to

be

imp

lem

ente

d.

17

3.

Inst

itu

tio

nal

ar

ran

gem

ents

ar

e ye

t to

b

e fo

rmal

ised

. G

reat

er

clar

ity

o

n

cen

tral

ly

spo

nso

red

fun

din

g ar

ran

gem

ents

is e

xpec

ted

to fa

cili

tate

this

thro

ugh

an

exc

lusi

ve N

MSH

sch

eme.

Wh

ile

an e

xclu

sive

co

mp

lian

ce a

nd

en

forc

emen

t m

ech

anis

m i

s n

ot

des

crib

ed i

n

18

the

Mis

sio

n,

it i

s ex

pec

ted

th

at t

he

exis

tin

g fr

amew

ork

fo

r re

leva

nt

on

goin

g

sch

emes

wo

uld

be

suit

ably

ad

op

ted

in t

his

co

nte

xt. I

n p

rin

cip

le, a

dh

eren

ce t

o t

he

NM

SH g

uid

elin

es w

ou

ld b

e k

ey to

sec

uri

ng

fun

din

g fo

r p

roje

cts

un

der

the

Mis

sio

n.

Ho

wev

er,

this

asp

ect

can

be

bet

ter

ob

serv

ed o

nce

th

e M

issi

on

im

ple

men

tati

on

gain

s si

gnif

ican

t mo

men

tum

.

18

TA

BL

E 5

.3: T

RA

CK

ING

TH

E P

RO

GR

ES

S O

F N

MS

H


13

Bu

dge

t Est

imat

es o

f Rs.

50

Cro

res

(20

11

-12

) an

d R

s. 5

Cro

res

(20

12

-13

) w

ere

do

wn

size

d to

the

Rev

ised

Est

imat

es o

f Rs.

5 C

rore

s an

d R

s. 1

Cro

re, r

esp

ecti

vely

.1

4F

irst

Rep

ort

of t

he

Stan

din

g C

om

mit

tee

on

Urb

an D

evel

op

men

t (2

01

4-1

5)

on

Dem

and

s fo

r G

ran

ts (

20

14

-15

) o

f th

e M

inis

try

of U

rban

Dev

elo

pm

ent,

(p

g 3

0 o

f 87

) ac

cess

ed a

t h

ttp

://1

64

.10

0.4

7.1

34

/lss

com

mit

tee/

Urb

an%

20

Dev

elo

pm

ent/

16

_Urb

an_D

evel

op

men

t_1

.pd

f1

5M

oU

D h

ead

s th

e In

ter-

Min

iste

rial

Gro

up

(IM

G)

and

th

e M

issi

on

Im

ple

men

tati

on

an

d M

on

ito

rin

g G

rou

p, r

esp

on

sib

le f

or

des

ign

ing

po

lici

es f

or

imp

lem

enta

tio

n, m

on

ito

rin

g an

d r

evie

win

g M

issi

on

pro

gres

s.1

6T

he

CP

HE

EO

is

the

tech

nic

al a

dv

iser

to

Mo

UD

fo

r al

l th

e ac

tiv

itie

s re

late

d t

o i

ts c

ore

are

as s

uch

as

wat

er s

up

ply

, sew

erag

e, s

oli

d w

aste

an

d s

torm

wat

er d

rain

age;

th

us

far

its

effo

rts

hav

e b

een

par

t of i

ts r

ou

tin

e su

pp

ort

pro

vid

ed to

the

Mo

UD

, rat

her

than

thro

ugh

an

exc

lusi

ve in

itia

tive

for

the

NM

SH.

17

Th

ese

are

the

Inte

r-M

inis

teri

al G

rou

p, M

issi

on

Imp

lem

enta

tio

n a

nd

Mo

nit

ori

ng

Gro

up

, Mis

sio

n D

irec

tora

te a

nd

Co

ord

inat

ion

Co

mm

itte

es a

t th

e St

ate,

Dis

tric

t an

d C

ity

leve

ls.

18

For

e.g.

(i)

th

e E

ner

gy C

on

serv

atio

n B

uil

din

g C

od

e (E

CB

C),

alr

ead

y m

ade

man

dat

ory

in t

he

CP

WD

's g

ener

al s

pec

ific

atio

ns

for

Ele

ctri

cal W

ork

s in

20

13

; (ii

) th

rou

gh in

tegr

atio

n o

f th

e E

CB

C in

to t

he

Bu

ild

ing

Byl

aws

of

the

Stat

es;

and

(ii

i) t

he

on

goin

g sc

hem

e o

f th

e M

inis

try

of

New

an

d R

enew

able

En

ergy

(M

NR

E)

to p

rom

ote

so

lar

wat

er h

eati

ng

– ad

dre

ss e

ner

gy e

ffic

ien

cy i

n c

om

mer

cial

an

dre

sid

enti

al s

ecto

rs.

19

The NMSH is highly advisory in nature, by

providing guidelines to key actors in the urban

planning space for mainstreaming ongoing

activities. Specifically, the Centre plays an indirect

role in enforcement by making adherence to

NMSH guidelines mandatory for Detailed Project

Reports (DPRs). These guidelines, though, are

still in the form of technical documents – they

need to percolate to the decentralised level to

address the modalities of implementation and

funding. This has to be accompanied by suitable

modification of activities already being overseen

as part of routine departmental responsibilities

for integrating climate change considerations.

A key aspect of the NMSH is the need to shift from

sector-level policies (transport, water supply,

solid waste, etc.), towards city-level and local area

planning – wherein the scale moves from city,

zone, to the ward level. This calls for greater

involvement of technical institutions towards

building local capacity and awareness through

training modules and in sensitising urban

planners within the ULBs and State Governments.

The Mission itself acknowledges instances of

city-level initiatives in building urban resilience

to climate change that are assisted by various

independent, non-government technical

partners. It would be valuable to undertake a

systematic documentation of such efforts, which

are currently dispersed and, in most cases,

undertaken independent of the Mission.

Mission Summary

a) NMSH on a `Mission Mode': Exclusive funding

for new activities and a dedicated team,

focusing on futuristic issues could provide

the Mission additional thrust to its

implementation and clarify financing aspects.

It would also facilitate ease in tracking project

status and overall Mission progress, not to

mention the much needed impetus for

initiating pilots and demonstration projects.

b) NMSH as a platform of policy convergence:

The Mission presents an opportunity to

converge the multiple policy interfaces and

overlapping guidelines. This should be seized

by integrating guidelines from all six sectors

and discussing linkages, rather than

introducing an additional layer of norms.

c) M a p p i n g o f o v e r l a p s / s c o p e f o r

mainstreaming with ongoing schemes:

This has to be undertaken on a priority basis to

facilitate better tracking, monitoring and

financing of relevant activities. It has been

partially done in the case of JnNURM, but has to

be applied for new schemes being announced.

d) Need for greater policy support from the

State Government: States need to revisit

urban planning legislations in order to

incorporate relevant norms on sustainable

habitat in CDPs – these need to be updated at

the nodal Ministry level.

e) Need to address technical, financial

and human resource capacity of ULBs:

ULBs require the capacity to handle the

multi-dimensional integrated nature of the

Mission; hence the need for a clearer roadmap

to engage other government agencies to

address this. They also need to be equipped

with greater financial resources, expected to

come through with their floating better

designed plans: this however points back to

the need for building technical capacity.

f) Need to inventorise decentralised efforts:

Several relevant city-level initiatives towards

building urban resilience to climate change are

being undertaken. While not initiated through

the Mission, they should be well documented

to keep the nodal Ministry informed for

planning and implementation of the Mission

mandate.

Recommendations


20

The National Water Mission (NWM) has been

envisaged within the NAPCC, with a broad

mandate that includes monitoring the key

activities of the Ministry of Water Resources

(MoWR), streamlining the focus of key

stakeholders to adopt an integrated approach to

conserving and efficiently managing water

resources, and the specific climate orientation in

this regard is embedded within its relatively

larger agenda.

The Mission outlines five goals across which

major initiatives have been envisioned and

aligned from ongoing schemes pertaining to the

development and management of water

resources in the country:

1. Comprehensive water data base in public

domain and assessment of impact of

climate change on water resource

2. Promotion of citizen and State action for

water conservation, augmentation and

preservation

3. Focused attention to vulnerable areas

including over-exploited areas

4. Increasing water use efficiency by 20%

5. Promotion of basin level integrated water

resources management

The targets provided in the Mission pertain to

review of governing policies and guidelines,

empowering stakeholders towards water use

efficiency, undertaking research studies to assess

climate change impacts on specific water

resources, capacity building and sensitisation

activities. However, these are broad components,

and require further disaggregation into specific

milestones to be attained during the Twelfth Plan

Period.

a) I m p l e m e n t a t i o n o f N W M ' S c h e m e :

This Central Sector scheme under the `Major

and Medium Irrigation' sector has been

approved in 2013 and is expected to bring

greater clarity to the initial progress of the

Mission, which had a very broad initial

Operationalisation Plan.

b) Key developments prior to launch of this

scheme under the NWM:Creation of the Water Resources Information

System (WRIS) in 2010 - addresses the NWM's

goal of placing a comprehensive database on

water resources in the public domain. It is a

collation of data on various water resource

parameters hitherto stored by multiple

agencies and Departments, and could act as a

valuable decision making tool for various

stakeholders.

Revision of the National Water Policy in 2012 -

increases the thrust on conjunctive use of

water resources (both ground and surface

water). While this had been in discussion even

earlier, it has been revised with the renewed

focus brought back by the NAPCC agenda.

c) State schemes and NWM: Several ongoing

schemes implemented by State Governments

have strong inter-linkages with the NWM

mandate. These are to be facilitated by the

Mission, but financing would rest with the

existing budgetary mechanism for State Sector

schemes.

d) State Water Missions under progress:

Once framed and operationalised, they would

determine the extent to which the NWM

mandate is absorbed into State level

implementation.

e) Role of the Mission Secretariat: The NWM

Secretar iat br ings together var ious

stakeholders to discuss, share and brainstorm

ideas to be taken up on a pilot basis. This is

expected to get suitably fed into schemes in the

form of revisions/expansion of scope to

address climate change concerns.


Introduction

5.4 National Water Mission

Salient Features of Mission Progress


Fin

an

c eP

oli

cy A

dm

inis

tra

tio

n

1.

Th

e p

rop

ose

d

ou

tlay

w

as

rev

ised

to

R

s.

69

,39

4

Cro

res

fro

m

Rs.

8

9,1

01

C

rore

s,

con

sid

erin

g th

e p

rio

riti

zed

st

rate

gies

an

d2

0sp

ecif

ic a

reas

of

inte

rven

tio

n p

rop

ose

d.

21

2.

NW

M o

per

ated

wit

h a

to

ken

all

oca

tio

n f

or

20

12

-13

an

d 2

01

3-1

4

un

til

a f o

rmal

ap

pro

val

of

the

Exp

end

itu

r e F

inan

ce C

om

mit

tee

(EF

C)

reco

mm

end

atio

n a

s a

Cen

tral

Sec

tor

sch

eme

in 2

01

3.

3.

Th

e ap

pro

v ed

ou

tlay

fo

r th

e T

wel

fth

Pla

n P

erio

d i

s R

s. 1

96

Cro

res

for

the ̀

Imp

lem

enta

tio

n o

f NW

M' s

chem

e:a.

tow

ard

s es

tab

lish

men

t o

f th

e M

issi

on

Dir

ecto

rate

, ap

pro

val

of

pil

ot

pro

ject

s an

d

con

du

ctin

g w

ork

sho

ps/

rou

nd

ta

ble

s fo

r

dis

cuss

ion

s w

ith

sta

keh

old

ers

b.

Pla

n o

utl

ay o

f R

s. 4

0 C

rore

s h

as b

een

ear

mar

ked

fo

r th

e ye

ar2

22

01

4-1

5 u

nd

er th

is s

chem

e w

ith

six

ke y

del

iver

able

s

1.

Th

e M

oW

R is

the

no

dal

Min

istr

y o

v ers

eein

g th

e M

issi

on

pro

gres

s. It

ho

use

s th

e M

issi

on

Sec

reta

riat

,

hea

ded

by

a M

issi

on

Dir

ecto

r, s

up

po

rted

by

tw

o A

dv

iso

rs f

or

Tec

hn

ical

an

d C

oo

rdin

atio

n &

Mo

nit

ori

ng

asp

ects

of t

he

Mis

sio

n. T

his

has

bee

n s

et u

p; h

ow

e ver

a fu

ll-t

ime

Mis

sio

n D

irec

tor

is y

et

to b

e ap

po

inte

d.

23

2.

Th

e N

atio

nal

Inst

itu

te o

f Hyd

rolo

gy(N

IH)

is th

e n

od

al a

gen

cy w

ith

in th

e M

oW

R to

en

sure

eff

ecti

v e

imp

lem

enta

tio

n o

f th

e M

issi

on

.3

.T

he

Mis

sio

n S

ecre

tari

at a

dv

ises

Sta

tes

on

in

tegr

atin

g m

anag

emen

t ap

pro

ach

es t

o v

ario

us

wat

er

use

s; h

ow

ever

it

r est

s u

po

n t

he

Stat

es t

o f

orm

ula

te S

tat e

an

d D

istr

ict

leve

l p

lan

s an

d c

ho

ose

an

app

r op

riat

e in

stit

uti

on

al s

etu

p.

4.

F ou

r d

edic

ated

Cli

mat

e C

han

ge

Cel

ls c

reat

ed i

n

the

NIH

, C

entr

al W

ater

Co

mm

issi

on

(W

C),

Cen

tral

Gro

un

d W

ater

Bo

ard

(C

GW

B)

and

Bra

hm

apu

tra

Bo

ard

(B

B).

Th

is is

th

e ar

ran

gem

ent

at t

he

Cen

tral

leve

l as

per

the

NW

M m

and

ate.

Mo

nit

ori

ng

, Re

po

rtin

g, E

va

lua

tio

n &

Re

vis

ion

C

om

pli

an

ce &

En

forc

em

en

t

1.

Cen

tral

leve

l: M

issi

on

Sec

reta

riat

an

d C

lim

ate

Ch

ange

Cel

lsSt

ate

lev e

l: D

epar

tmen

t o

f W

ater

Res

ou

rces

– t

his

is

yet

t o g

ain

mo

men

tum

. N

WM

im

ple

men

tati

on

req

uir

es a

cco

mp

any

ing

Stat

e

Wat

er M

issi

on

s an

d c

om

men

sura

te p

lan

nin

g fr

om

Sta

te b

ud

geta

ry

reso

urc

es a

s w

ell.

2.

A fo

rmal

pla

tfo

rm to

co

llat

e p

rogr

ess

of t

he

NW

M s

chem

e as

wel

l as

tho

se N

WM

act

ivit

ies

bu

dge

ted

pri

or

to 2

01

3 f

or

mo

nit

ori

ng

is y

et2

4to

be

est

abli

shed

.

1.

Th

e C

WC

rel

ease

d g

uid

elin

es i

nd

icat

ing

sect

or-

wis

e sc

op

e to

im

pro

ve e

ffic

ien

cy t

hro

ugh

var

iou

s

regu

lato

ry, p

rici

ng,

au

dit

, tec

hn

olo

gica

l up

grad

atio

n a

nd

ou

trea

ch m

easu

res

in N

ove

mb

er 2

01

4.

2.

A N

atio

nal

Bu

reau

of

Wat

er U

se E

ffic

ien

cy (

NB

WU

E)

un

der

th

e E

nv

iro

nm

ent

(Pro

tect

ion

)

Act

, 1

98

6 h

as b

een

pro

po

sed

to

pro

mo

te a

nd

r

egu

late

eff

icie

nt

wat

er u

se a

cro

ss s

ecto

rs.

On

ce

the

Bu

r eau

is

fo

rmal

ised

and

co

nst

itu

ted

w

ith

w

ell-

def

ined

sc

op

e,

the

com

pli

ance

and

en

forc

emen

t asp

ects

can

be

bet

ter

asse

ssed

exc

lusi

vely

thro

ugh

the

Mis

sio

n. T

his

is e

xpec

ted

t o

add

ress

go

al 4

of

the

NW

M o

n i

ncr

easi

ng

wat

er u

se e

ffic

ien

cy b

y 2

0%

. T

his

has

bee

n a

llo

tted

Rs.

50

Cro

res,

ou

t of t

he

Rs.

19

6 C

rore

s sa

nct

ion

ed fo

r th

e T

wel

fth

Pla

n P

erio

d.

21

19

TA

BL

E 5

.4: T

RA

CK

ING

TH

E P

RO

GR

ES

S O

F N

WM


19

Info

rmat

ion

in th

is r

egar

d r

efle

cts

dev

elo

pm

ents

up

to M

arch

20

15

20

Th

is is

on

acc

ou

nt o

f th

e cl

ose

lin

kag

e id

enti

fied

bet

wee

n p

rop

ose

d N

WM

act

ivit

ies

and

on

goin

g w

ater

sec

tor

sch

emes

.2

1O

utc

om

e b

ud

gets

an

d A

nn

ual

Rep

ort

s o

f th

e M

oW

R in

dic

ate

nil

uti

liza

tio

n f

or

20

12

-13

an

d R

s. 0

.71

Cro

res

for

20

13

-14

aga

inst

rev

ised

est

imat

es o

f R

s. 0

.25

Cro

res

and

Rs.

2 C

rore

s, r

esp

ecti

vely

un

der

the ̀

Imp

lem

enta

tio

n o

f NW

M' s

chem

e.2

2O

utc

om

e B

ud

get 2

01

4-1

5 o

f th

e M

oW

R 2

3T

he

NIH

ho

use

s th

e se

cret

aria

t o

f th

e In

dia

n N

atio

nal

Co

mm

itte

e o

n C

lim

ate

Ch

ange

(IN

CC

C),

wh

ich

was

fo

rmed

in

20

12

as

the

no

dal

en

tity

to

co

ord

inat

e va

rio

us

rese

arch

in

itia

tive

s u

nd

er t

he

NW

M m

and

ate.

It

is u

nd

er t

he

adm

inis

trat

ive

con

tro

l of

the

Mis

sio

n D

irec

tor,

NW

M a

nd

ove

rsee

s th

e ap

pro

val a

nd

pro

gres

s o

f re

sear

ch s

tud

ies

rela

tin

g to

ass

essm

ent

of

imp

act

of

clim

ate

chan

geo

n w

ater

res

ou

rces

, do

wn

sca

lin

g o

f cli

mat

e ch

ange

mo

del

s an

d r

elev

ant a

dap

tati

on

str

ateg

ies.

24

An

exc

lusi

ve o

nli

ne

po

rtal

to

pre

sen

t co

nso

lid

ated

NW

M d

evel

op

men

ts h

as b

een

pro

po

sed

, bu

t is

yet

to

be

crea

ted

. Cu

rren

tly

NW

M d

etai

ls a

re b

ein

g ga

ther

ed t

hro

ugh

up

dat

es a

nd

sta

nd

ard

dis

clo

sure

s o

n th

e M

oW

R w

ebsi

te, a

s is

the

case

for

rou

tin

e sc

hem

es a

nd

init

iati

ves

sup

po

rted

by

the

bu

dge

tary

res

ou

rces

of t

he

Min

istr

y. 2

5A

vail

able

on

the

Mo

WR

at h

ttp

://w

rmin

.nic

.in/w

rite

read

dat

a/G

uid

elin

es_f

or_

imp

rov

ing_

wat

er_u

se_e

ffic

ien

cy.p

df

22

The NWM has a broad mandate that covers a wide

range of ongoing water sector initiatives.

The Mission acknowledges the importance of

conducting suitable impact assessments and

pilot studies to integrate climate change concerns

within the ambit of water resource development

and management. It duly recognises the need to 2 6augment technical capacity as well as

actively sensitise stakeholders at the grass

root level regarding water use efficiency.

Industry collaborations have also been mooted in

this regard.

Despite the launch of an exclusive NWM scheme

as recently as 2013, it is notable that information

relating to the progress on select goals of the

Mission until then has also been available

through the MoWR's routine and ad-hoc

disclosures. In this regard, it would be of

immense value to systematise dissemination of

NWM-relevant progress in a single platform, as is

already under consideration. Along with the

WRIS, this could serve as an important tool for

strengthening internal decision making as well as

enhancing the alignment of future activities with

ongoing water sector schemes.

Mission Summary

a) Need for concerted efforts towards exclusive

tracking of NWM activities: A greater effort in

tracking and understanding the status of actual

implementation is important for monitoring as

well as revising interim goalposts. This is more

so because NWM-relevant activities have been

budgeted for, even prior to the launch of the

`Implementation of NWM' scheme in 2013.

b) Institutional strengthening: The proposed

mechanism for monitoring and ensuring

compliance to Mission guidelines has to be

suitably established. There is a need to appoint

a full-time Mission Director in this regard, to

maintain and enhance the momentum of

progress achieved thus far. State level

counterparts also have to be vested with

NWM-specific responsibilities in this regard.

c) Need to expedite State level action plans:

States need to respond to the Centre's call to

finalise their State Water Missions, and

consequently form Climate Change Cells (CCC)

at the Departmental level.

d) Systematised dissemination and reporting

of key milestones: It is important to establish

an exclusive platform for reporting Mission

progress, given the extensive scope of water

resource management and multiple user

groups. With the recently announced NWM

scheme, this could supplement the MoWR's

efforts in tracking Mission activities. It would

also facilitate streamline areas of the Mission

that require the engagement of other

Ministries and government agencies.

Recommendations

26 With inputs from institutions like the National Institutes of Technology (NITs), Indian Institutes of Technology (IITs) and the Indian Institute of Science (IISc)


5.5 National Mission for Sustaining the Himalayan Ecosystem

23

The National Mission for Sustaining the

Himalayan Ecosystem (NMSHE) is designed to

provide a support system in terms of

environment protection and sustainability

measures through scientific research in the

Indian Himalayan Region (IHR). While the

Mission was launched in June 2010, it received

formal approval from the Union Government only

in February 2014. It was initiated on the premise

of the high degree of vulnerability of local

communities living in this region to impacts of

climate change. It seeks to enhance the

environment of such a vast region which is

diverse in terms of its topography, agro-climatic

zones, development trajectories, etc. The Mission

is all encompassing in terms of the sectors

covered and scientific disciplines involved.

In the context of the Mission's wide ranging

objectives, the Mission outlines a set of targets

that are to be achieved by the end of the Twelfth

Plan period through sub-missions and indicates

associated ballpark cost figures for the same.

Subsequent deliberations after the Mission's

approval finalized six task force institutions

which were the designated coordinators for

implementing its activities. Most of the

institutions in this task force are existing bodies

with predefined objectives and work areas which

overlap with the components of the NMSHE.

Hence they have been assigned the roles of taking

forward specific research and implementation of

activities under the Mission.

Given the Mission's agenda which is mostly to

carry out specific scientific research based

activities spread over the twelve Himalayan

States through six task force institutions, it has

been extremely challenging to track its progress

through this Study. This is further enhanced by

the dispersed set of activities being funded by

several implementing bodies with or without an

intended Mission objective in mind. Hence along

with tracking this Mission across the core

functions of implementation, snapshots of

progress made by each of the task force

institutions has been provided in this section.

Although the details of the institutional progress

have not been elaborated in this chapter, the

detailed Mission brief provides the same.

Background7Tracking the Mission's Progress


TA

BL

E 5

.5: T

RA

CK

ING

TH

E P

RO

GR

ES

S O

F N

MS

HE

24


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an

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cy A

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dg

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the

M

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on

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12

P

lan

p

eri

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00

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res

(Rs.

55

0 C

rore

s ap

pro

ved

in F

ebru

ary

20

14

).

2.

Th

e si

x ta

sk f

orc

e in

stit

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on

s id

enti

fied

to

co

ord

inat

e M

issi

on

act

ivit

ies

are

exp

ecte

d t

o s

ub

mit

a p

lan

hig

hli

ghti

ng

the

pro

gram

mes

for

a 5

-7 y

ear

per

iod

see

kin

g b

ud

geta

ry a

pp

rova

ls fr

om

th

e D

epar

tmen

t o

f Sci

ence

an

d2

7T

ech

no

logy

(D

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). B

ased

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terv

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s,

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as o

bse

rved

th

at a

ll t

he

task

forc

e in

stit

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on

s h

ave

bee

n a

pp

rove

d.

3.

Wh

ile

som

e o

f th

e ta

sk fo

rce

inst

itu

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ns

lik

e th

e JN

U h

ave

mad

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into

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tak

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uil

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itia

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d s

ign

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ial r

esea

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ium

s, f

ew o

ther

s ar

e ei

ther

in

th

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ss o

f se

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g fu

nd

s o

r

bu

ild

ing

cap

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der

tak

e M

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act

ivit

ies.

1.

Th

e M

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on

Dir

ecto

rate

is

ho

use

d w

ith

in t

he

Do

ST w

ith

a s

mal

l te

am t

o s

pea

rhea

d i

t

act

ivit

ies.

2.

Tas

k f

orc

e in

stit

uti

on

s ar

e to

a p

lay

vit

al r

ole

in

Mis

sio

n a

ctiv

itie

s b

ased

on

th

eir

core

com

pet

enci

es.

Th

ey a

re e

xpec

ted

to

co

mp

lem

ent

each

oth

er a

t th

e ch

ose

n g

eogr

aph

ical

regi

on

(in

form

atio

n f

rom

on

e in

stit

uti

on

is

exp

ecte

d t

o f

eed

in

to a

no

ther

). A

co

mm

on

pla

tfo

rm t

o l

ink

th

e ta

sk f

orc

e h

ead

s/m

emb

ers

has

bee

n s

et u

p t

hro

ugh

an

e-g

rou

p.

Th

e M

inis

try

of

En

vir

on

men

t, F

ore

sts

and

Cli

mat

e C

han

ge (

Mo

EF

&C

C)

and

Min

istr

y o

f E

arth

Scie

nce

s (M

oE

S) a

re e

xpec

ted

to c

on

trib

ute

on

a n

eed

bas

is.

3.

7 o

f 12

Sta

tes

hav

e re

ceiv

ed a

pp

roxi

mat

ely

Rs.

2 C

rore

s (d

iffe

rs a

cro

ss S

tate

s) to

set

up

Cli

mat

e

Ch

ange

Cel

ls (

CC

C)

to fa

cili

tate

tran

sfo

rmat

ion

of N

MSH

E in

to S

tate

leve

l pro

gram

mes

.

Mo

nit

ori

ng

, Re

po

rtin

g, E

va

lua

tio

n &

Re

vis

ion

C

om

pli

an

ce &

En

forc

em

en

t

1.

Th

e M

issi

on

h

ad

pro

po

sed

a

cell

at

th

e C

entr

e an

d

coo

rdin

atin

g

com

mit

tee

to in

clu

de

rep

rese

nta

tive

s o

f th

e ta

sk f

orc

e. I

t is

un

clea

r as

to

wh

eth

er a

form

aliz

ed p

latf

orm

has

bee

n c

reat

ed in

th

is c

on

text

; ho

wev

er

it i

s k

no

wn

th

at t

her

e ar

e p

erio

dic

mee

tin

gs b

etw

een

th

e D

oST

an

d t

he

oth

er a

gen

cies

to d

iscu

ss M

issi

on

act

ivit

ies.

2.

Th

e M

issi

on

had

als

o e

nv

isag

ed c

on

tin

uo

us

mo

nit

ori

ng

and

an

alys

is o

f

ind

icat

ors

o

f en

vir

on

men

tal

chan

ge

in

the

regi

on

. T

his

w

as

to

be

coo

rdin

ated

wit

h o

ther

rel

evan

t M

inis

trie

s. B

ut

give

n t

hat

th

e M

issi

on

is

stil

l at

a n

asce

nt

stag

e o

f im

ple

men

tati

on

, su

ch m

ech

anis

ms

cou

ld n

ot

be

eval

uat

ed a

t th

is s

tage

.

1.

Th

e M

issi

on

do

es n

ot

incl

ud

e an

exc

lusi

ve s

trat

egy

to

en

sure

co

mp

lian

ce t

o m

and

ates

an

d

guid

elin

es w

ith

the

imp

lem

enti

ng

agen

cies

an

d o

ther

sta

keh

old

ers.

2.

Sect

ora

l po

lici

es, l

aw a

nd

act

s ar

e ex

pec

ted

to

pla

y a

ro

le in

th

is c

on

text

. Th

e M

issi

on

co

uld

be

mo

stly

d

epen

den

t o

n

con

ven

tio

nal

re

gula

tory

sy

stem

s fo

r en

suri

ng

com

pli

ance

in

it

s

acti

vit

ies.

Th

e es

tab

lish

men

t o

f C

lim

ate

Ch

ance

Cel

l (C

CC

) is

all

th

e St

ates

mig

ht

be

cru

cial

in

this

reg

ard

.

27

Th

e St

ud

y t

eam

has

dis

cuss

ed im

ple

men

tati

on

pro

gres

s w

ith

th

e D

oST

an

d t

he

task

forc

e in

stit

uti

on

s o

n a

per

iod

ic b

asis

du

rin

g th

e st

ud

y p

erio

d. T

he

end

dat

e ti

ll w

hic

h in

form

atio

n w

as g

ath

ered

in

th

is r

egar

d v

arie

s b

etw

een

th

e d

iffe

ren

t in

stit

uti

on

s d

epen

din

g o

n t

he

exp

ecte

d p

rogr

ess

ind

icat

ed b

y t

hem

. T

he

fun

ds

app

rove

d a

nd

all

oca

ted

als

o a

re a

s p

er i

nte

rvie

ws

con

du

cted

an

d a

re a

pp

roxi

mat

ion

s.

The Mission is yet to reach a stage of full-fledged

implementation in most of its components but

such an evaluation at this juncture highlights key

areas that the nodal Departments need to focus

on beforehand. The Mission is largely being

implemented through its six task force

institutions which have been assigned scientific

but varied roles and components within it.

Each of them has been approved during different

times in the last year with varying budgets

depending on their detailed annual or five year

plans. Each task force institution is expected to

provide a technical and financial progress report

at the end of every financial year after which fresh

funds would be disbursed for future activities.

After receiving budgetary sanctions and

allocations, most of the institutions are at varying

stages of building technical and human resource

capacity to carry out Mission activities. Once the

Mission advances to the stage of actively

implementing its programmes, the task force

institutions would be required to coordinate with

Climate Change Cells of all Himalayan States to

identify plausible overlaps and integration with

proposed State Action Plan on Climate Change

(SAPCC) activities. Discussions to merge

Mission activities with ongoing Departmental

programmes are in the offing.

25

Mission SummaryAll the above mentioned bodies would often be

required to work or supervise implementation

at a common geographical region. They might

also be dependent on each other for relevant

data sharing and communication which again

needs to take place on either a periodic or need

basis.

b) F r e q u e n t c o n s u l t a t i o n b e t w e e n

stakeholders: The NMSHE involves requires

greater coordination and cooperation amongst

State bodies even for its forest management

and environment conservation activities.

Hence more frequent consultations are

recommended between the DoST and other

stakeholders in the IHR.

c) Effective communication and dissemination

platform for Mission activities: Given the

disseminated efforts that need to be invested

towards carrying out activities across the

12 States, continuous M&E of programmatic

design and their impacts and subsequent

speedy interventions to revive dysfunctional

systems is a necessity. Along with such

revisions, an effective and active platform to

communicate such changes to the wide range

of relevant stakeholders needs to be

maintained.

d) Inter-country collaborations: Since the

NMSHE mainly focuses on sustaining the

Himalayan Ecosystem, it is important that

India coordinates with its neighboring

countries like Bhutan, Nepal, Tibet, etc. which

are part of this ecosystem and to be affected

cl imate change. Hence cross-border

collaborations and climate initiatives are to be

expedited as proposed in the Mission

document. CCCs in each of the States could be

provided such mandates after being set up.

e) Exclusive team for Mission implementation:

The DoST, being a department which has been

conventionally undertaking scientific research

and activities, has been assigned the role of

spearheading the NMSHE. Along with this

mandate, the DoST has also been entrusted the

responsibility of housing the NMSKCC apart

from its own Departmental programmes.

Hence it could benefit the implementation of

the NMSHE to assign an exclusive team to

supervise operation of the Mission.

Recommendations


a) Utmost coordination between implementing

agencies: The Mission is unique in its vast

geographical scope of activities to be

undertaken, States covered, implementing

agencies involved and communities affected.

It is imperative that the DoST ensures

paramount levels of coordination between

the following agencies:

i. The task force institutions

ii. The task force institutions and the DoST

iii.The CCCs and the task force institutions

iv. The CCCs of the 12 Himalayan States

v. DoST and the Himalayan State Departments

vi. The MoEF&CC and DoST

26

The GIM was envisaged as a comprehensive

participatory Mission for greening India and was

launched in June 2010. The Mission (The National

Mission for a Green India, 2010) adopted

scientific and inclusive methods of implementing

conventional afforestation programmes

using decentralized governance frameworks

necessitating community participation. In its

attempt to break down a policy of such enormous

scope into actionable projects and activities the

Mission had proposed a comprehensive yet

ambitious framework of landscape level

implementation. The Mission document

attempted at compartmentalizing the concept of

greening into streamlined programmes by first

outlining its objectives and targets and

then highlighting its strategies to achieve

them through sub-missions. The way forward for

this Mission would be to convert the

sub-missions into actionable projects either

through ongoing or fresh programmes with a

clear mandate.

The success of this Mission largely depends on

how effectively it achieves the mentioned

decentralized management of forests in the long

run. If not empowered sufficiently with

resources, capacity and authority, both the

governing bodies and community groups could

fail to perform activities to this effect.

In the context of this Mission, it is important to

understand how its design and comprehensive

framework has been enforced given the current

institutions in place and its distinguished

approach to greening, The Mission's progress had

been tracked through information published till

March 2015.

5.6 National Mission for a Green India

Introduction

a) Mainstreaming of Mission activities:

This could be easier since the activities

proposed by the Mission are of similar nature

as conventional departmental schemes (with

certain overlaps) but with a more scientific

and comprehensive design and fresh

implementation outlook.

b) No exclusive financing and institutional

mechanism for Mission activities: In certain

areas where it proposes coordinating with

exclusive forest management agencies, they

are existing bodies consisting of local

communities, SHGs and decentralized

governing agencies.

c) Need for greater coordinated efforts:

The Mission largely depends on convergence

between its activities and ongoing flagship

programmes and Centrally Sponsored Scheme

(CSS). There is no system in place to ensure

coordination between these departments

except for the recent Convergence Guidelines

released by the MoEF&CC.

d) Inadequate Compliance and Enforcement

mechanisms: The Mission does not include

any legal or regulatory framework through

which strict adherence can be ensured and

deviations penalised. Currently, it is dependent

on coordinating agencies like MNREGS, DAC

and CAMPA for their compliance mechanisms.

Key Observations

7Tracking the Mission's Progress


27

TA

BL

E 5

.6: T

RA

CK

ING

TH

E P

RO

GR

ES

S O

F G

IM


Fin

an

ceP

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dm

inis

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tio

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Pro

po

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bu

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r th

e M

issi

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was

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Stat

es to

pre

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lan

s

4.

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the

year

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-15

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s. 8

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or

fun

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lan

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bm

itte

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1 S

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On

goin

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SS a

nd

flag

ship

sch

emes

un

der

the

Mo

EF

&C

C c

ou

ld b

e u

sed

as

afi

nan

cin

g ro

ute

for

imp

lem

enti

ng

the

Mis

sio

n a

ctiv

itie

s.

1.

Th

e M

issi

on

was

to b

e sp

earh

ead

ed b

y a

Mis

sio

n D

irec

tor a

te in

the

Nat

ion

al A

ffo

r est

atio

n a

nd

Eco

-dev

elo

pm

ent B

oar

d (

NA

EB

) b

ut c

urr

entl

y in

the

Mo

EF

&C

C.

2.

In F

ebru

ary

20

14

, th

e G

IM w

as a

pp

rove

d b

y t

he

Cab

inet

Co

mm

itte

e o

n E

con

om

ic A

ffai

rs a

s a

CSS

.

3.

Stat

e le

vel:

Sta

te F

ore

st D

evel

op

men

t A

gen

cy (

SFD

A)

in t

he

Fore

st D

epar

tmen

t t o

be

anex

clu

sive

bo

dy

for

GIM

act

ivit

ies,

no

su

ch a

rran

gem

ents

mad

e ye

t.

Dis

tric

t le

vel:

Mis

sio

n a

ctiv

itie

s to

be

coo

rdin

ated

th

rou

gh t

he

exis

tin

g D

istr

ict

Pla

nn

ing

Co

mm

itte

es (

DP

Cs)

an

d F

ore

st D

evel

op

men

t Age

nci

es (

FD

A).

Vil

lage

lev

el:

Gra

m S

abh

as,

JFM

Cs,

Co

mm

un

ity

Fo

rest

Man

agem

ent

(CF

M)

gro

up

s, V

anP

anch

ayat

s, V

illa

ge C

ou

nci

l etc

., to

pla

y v

ital

ro

les

in im

ple

men

tati

on

4.

Tw

o s

ets

of g

uid

elin

es w

ere

r ele

ased

in th

is c

on

text

.

a.Im

ple

men

tati

on

Gu

idel

ine

in N

ovem

ber

20

14

to

gu

ide

t he

pr e

pa

rati

on

of

the

Per

spec

tive

Pla

ns.

b.

Co

nve

rgen

ce G

uid

elin

es i

n M

arc

h 2

01

5 a

im t

o f

aci

lita

te c

on

verg

ence

bet

wee

n M

ah

atm

aG

an

dh

i Na

tio

na

l Ru

ral E

mp

loym

ent G

ua

ran

tee

Sch

eme

(MN

RE

Gs)

an

d th

e G

IM.

5.

Exc

lusi

ve

guid

elin

es

to

ease

o

ut

the

r egu

lato

ry

regi

me

for

har

vest

ing

and

tr

ansi

t o

fag

ro-f

ore

stry

sp

ecie

s is

exp

ecte

d t o

be

rele

ased

by

the

Mo

EF

&C

C.

Mo

nit

ori

ng

, Re

po

rtin

g, E

va

lua

tio

n &

Re

vis

ion

C

om

pli

an

ce &

En

for c

em

en

t

1.

Th

e M

issi

on

pro

po

sed

a fo

ur

leve

l M&

E fr

amew

ork

at

dif

fer e

nt

lan

dsc

ape

leve

ls. I

t in

volv

ed b

oth

in

tern

al a

nd

ext

ern

al a

gen

cy a

sses

smen

ts. A

s th

eM

issi

on

is

yet

to r

each

a s

tage

of

full

-fle

dge

d i

mp

lem

enta

tio

n,

it i

s to

oea

rly

to a

sses

s th

is fr

amew

ork

.

2.

Th

e Im

ple

men

tati

on

G

uid

elin

es

incl

ud

es

a P

erfo

rman

ce

Mo

nit

ori

ng

Fra

mew

ork

(P

MF

) te

mp

late

that

it r

equ

ires

all

the

imp

lem

enti

ng

agen

cies

to a

do

pt w

hil

e tr

ack

ing

the

pro

gres

s o

f th

e M

issi

on

act

ivit

ies.

Exi

stin

g r e

gula

tory

mec

han

ism

s ar

e ex

pec

ted

to fa

cili

tate

en

forc

emen

t w.r

.t. t

o th

is M

issi

on

:

a.D

epar

tmen

t o

f A

gric

ult

ure

an

d C

oo

per

atio

n (

DA

C)

has

dev

elo

ped

a c

om

pre

hen

sive

agri

cult

ure

po

licy

(N

atio

nal

Agr

ofo

rest

ry P

oli

cy,

20

14

) w

hic

h i

s ex

pec

ted

to

eas

e th

eu

pta

ke

of a

go-f

or e

stry

pr a

ctic

es a

mo

ngs

t Sta

tes.

b.

Th

e gu

idel

ines

(T

he

Gu

idel

ines

on

Sta

te C

om

pen

sato

ry A

ffo

rest

atio

n F

un

d M

anag

emen

tan

d P

lan

nin

g A

uth

ori

ty (

Stat

e C

AM

PA),

20

09

) is

sues

in th

e co

nte

xt o

f CA

MPA

are

exp

ecte

dto

pla

y a

vit

al r

ole

in s

up

erv

isin

g th

e d

istr

ibu

tio

n o

f fu

nd

s.

The Mission, through its initial document,

proposed a comprehensive set of targets,

strategies to achieve them and the financial

requirements for the same. The proposed

advisory committees actively assembled in

2011-12 to design and agreed upon acceptable

frameworks for identifying landscapes for

Mission implementation. The major outcome of

these meetings was to promote the States to

prepare their Bridge (One year) and Perspective

(Five/Ten Year) Plans and identify funding

sources for the same.

The next chronological step to implementation

was to release Implementation Guidelines

for States to follow while preparing their

Perspective Plans. While the States, since 2012,

simultaneously worked on preparing these plans

to indicate their landscapes and strategies to take

the GIM forward, the Implementation Guidelines

were released as late as November 2014.

During the consultations that ensued the release

of these guidelines, the States were required to

rework on their plans to adhere to them. This was

a task being repeated due to the delayed release

in the Implementation Guidelines.

Going forward, financing the chosen programmes

as well as projects at different landscapes as part

of the Perspective plans would be key in

deciding the progress achieved by the Mission.

Additionally, empowering decentralized bodies

with adequate capacity and regulatory powers

would enhance the Mission's achievements.

28

Mission Summary

a) D i s t i n c t i o n b e t w e e n M i s s i o n a n d

Departmental Schemes: There is a need to

maintain a distinction between ongoing

schemes and additionally funded schemes

specifically to benefit India's stance and

financing options in the context of

international climate negotiations. This would

highlight better, the efforts being dedicated

towards climate mitigation and adaptation by

the government.

b) Specialized capacity building: The thrust on

specific skill and capacity building across State

and village level bodies needs to be further

reinforced since the Mission heavily depends

on decentralized governance.

c) Need for coordinated efforts: Even though

coordinating agencies and programmes like

CAMPA, DAC and MNREGS have their own

mechanism and guidelines in place, synergy

between the Mission and such programmes

cannot be overlooked. Convergence guidelines

recently issued need to be applied with utmost

efficiency and in a transparent manner.

d) Climate Orientation: Although the traditional

knowledge and capacity of local governing

bodies in implementing existing schemes

cannot be undermined, renewed orientation

towards forest management with the objective

of mitigating and adapting to climate change

could make the Mission more impactful.

e) System of incentivizing governance and

ownership: A robust system of incentivizing

decentralized governance could further

i n c r e a s e t h e e f f i c a c y o f M i s s i o n' s

implementation. Hence the uptake of this

additional layer of Mission activities could be

further enhanced through appropriate

incentives. Mechanisms like the Payment for

Eco-system Services (PES) could be explored

for their relevance in certain areas to further

enhance community participation.


Recommendations

5.7 National Mission for Sustainable Agriculture

29

The National Mission for Sustainable Agriculture

(NMSA) seeks to devise appropriate adaptation

and mitigation strategies in the agriculture sector

in the context of risks associated with climate

change. These are towards achieving the larger

milestones of ensuring food security, equitable

access to food resources, enhancing livelihood

opportunities, improved farm practices using

new technology and contributing to economic

stability at the national level. The Mission

additionally classifies its strategies into

functional components viz. Research and

Development, Technology and Practices,

Infrastructure and Capacity Building to cross

analyze their technical capacity and financial 28requirements. The NMSA was accorded 'in

principle' approval by Prime Minister's Council

on Climate Change (PMCCC) in September 2010.

The Department of Agriculture & Cooperation

(DAC), the designated nodal agency for this

Mission, planned to implement the Mission

strategies by mainstreaming its ongoing

programmes with those of the NMSA. Along with

the Mission, the department also identified 17

goals, annual deliverables and stepwise time

frames to implement these in a separate

release(Climate Change Resources, 2010).

The NMSA is an apt example of mid-course

corrections being carried out wherein

programmes initially identified were refurbished

to be subsumed under DAC programmes, paving

way for exclusive and freshly developed

interventions under the Mission.

In 2014, a complete set of Operational Guidelines

(DAC, 2014) for NMSA implementation were

released, highlighting exclusive interventions

which would not be covered through other

programmes of the DAC. Consequently, the

revamped programmes of the DAC, like the

Rainfed Area Development Programme (RADP),

National Mission on Micro Irrigation (NMMI),

National Project on Organic Farming (NPOF),

National Project on Management of Soil Health &

Fertility (NPMSH&F) and the Central Sector

Scheme of Soil and Land Use Survey of India

(SLUSI), were subsumed to form the revised

programmatic interventions under the NMSA in

2014. These programmes were further stalled

from operation and their funds earmarked for the

new dimensions under NMSA.

Currently, the revamped NMSA, as an exclusive

programmatic Mission intervention, addresses 29only 4 dimensions with 5 deliverables .

The Mission, through its Operational Guidelines,

identified four interventions namely Rainfed

Area Development (RAD), On Farm Water

Management (OFWM), Soil Health Management

(SHM) and lastly Climate Change and Sustainable

Agriculture: Monitoring, Modeling and

Networking (CCSAMMN). These interventions

came into effect only from the year 2014.

Introduction

28 National Mission For Sustainable Agriculture - Strategies forMeeting the Challenges of Climate Change, Department ofAgriculture and Cooperation, Ministry of Agriculture, New Delhi, August 2010.


29 These 5 dimensions have been quoted based on a presentationmade by the DAC to indicate progress achieved by the Mission.

Tra

ckin

g t

he

Mis

sio

n's

Pro

gre

ss

30

30

Th

e va

rio

us

dim

ensi

on

s o

f p

rogr

ess

du

rin

g th

e co

urs

e o

f im

ple

men

tin

g th

e N

MSA

hav

e b

een

tra

cked

du

rin

g th

is S

tud

y a

nd

are

hig

hli

ghte

d

in t

his

sec

tio

n.

TA

BL

E 5

.7: T

RA

CK

ING

TH

E P

RO

GR

ES

S O

F N

MSA


30

Th

e M

issi

on

has

bee

n tr

ack

ed th

rou

gh v

ario

us

sou

rces

till

Jan

uar

y 2

01

5, h

ence

dev

elo

pm

ents

till

this

per

iod

alo

ne

are

refl

ecte

d in

this

ch

apte

r.

Fin

an

ceP

oli

cy A

dm

inis

tra

tio

n

1.

Init

ial b

ud

get p

rop

ose

d R

s. 1

,08

,00

0 C

rore

s2

.B

ud

get

rev

ised

to

R

s.

12

,56

4

Cro

res

afte

r N

MSA

w

as

rest

ruct

ure

d

(Rs.

13

,05

4 C

rore

s ap

pro

ved

)

1.

Stat

es

adv

ised

to

d

raft

A

nn

ual

A

ctio

n

Pla

ns

(AA

Ps)

an

d

5-7

ye

ar

Mis

sio

n

Imp

lem

enta

tio

n P

lan

s (M

IPs)

2.

Pri

or

to f

inal

izin

g M

IPs

a fe

w S

tate

s h

ave

fin

aliz

ed A

AP

s an

d a

re i

n t

he

pro

cess

of

seek

ing

app

rova

l fro

m D

AC

3

.L

earn

ing

fro

m N

ICR

A to

be

pro

vid

ed a

s in

pu

ts in

to N

MSA

, yet

to b

e d

ocu

men

ted

4.

Op

erat

ion

al G

uid

elin

es r

elea

sed

in 2

01

4 e

lab

ora

tin

g o

n im

ple

men

tati

on

fram

ewo

rk5

.M

issi

on

hea

vil

y d

epen

den

t on

co

nve

rgen

ce w

ith

on

goin

g fl

agsh

ip p

rogr

amm

es

Mo

nit

ori

ng

, Re

po

rtin

g, E

va

lua

tio

n &

Re

vis

ion

C

om

pli

an

ce &

En

forc

em

en

t

1.

Th

ree

tier

M

&E

fr

amew

ork

en

vis

aged

at

N

atio

nal

, St

ate

and

Dis

tric

t lev

els

2.

Cen

tre

and

Sta

te le

vel b

od

ies

hav

e b

een

est

abli

shed

wh

ile

Dis

tric

t

leve

l o

nes

are

yet

to

be

form

aliz

ed.

Fir

st S

tan

din

g T

ech

nic

al

Co

mm

itte

e (S

TC

) re

vie

w m

eeti

ng

hel

d in

Jan

uar

y 2

01

53

.M

issi

on

to a

lso

ad

op

t exi

stin

g m

ech

anis

ms

of D

AC

pro

gram

mes

Mis

sio

n d

oes

no

t p

rop

ose

exc

lusi

ve c

om

pli

ance

mec

han

ism

, ex

pec

ted

to

uti

lize

th

e sa

me

fro

m D

AC

pro

gram

mes

Although Mission implementation was delayed till

2014, there was a significant revamping of the

Mission by mainstreaming the ongoing agriculture

development programmes of DAC with its strategies

through a process of restructuring and convergence.

Currently, the NMSA comprises of exclusive

interventions to cover both adaptation and

mitigation of climate change impacts. The challenge

hereafter is to draw a roadmap for effective tracking

of the Mission activities which might mostly depend

on the DAC for its finances and institutional

framework. Nevertheless, strengthening the present

implementation process with proper coordination

between relevant stakeholders will enhance the

effectiveness of the NMSA. In the attempt to adopt a

decentralized design of accelerating implementation

of Mission activities, subtle overlaps between plans

prepared by different tiers of the government need to

be avoided.

Going forward, the Mission's progress largely

depends on designating roles and responsibilities to

different coordinating institutions as identified in the

Operational Guidelines and ensuring coordination

between such institutions within the different tiers of

governance. This would eliminate any overlap

between the sector and NMSA specific interventions

as well clarify their implementation framework.

31

Mission SummaryAAP and MIP. Considering that the Operational

Guidelines also promote integration of SAPCC

initiatives with those of the AAP, Climate

Change Cells (CCC) in the States would require

to work together with the nodal agencies for

the NMSA to achieve them. The need for

different tiers of governments with separate

mandates to work together reiterates the

requirement for greater coordination between

them to implement this Mission.

c) Chronology of implementation: As the

village and District level agricultural plans

need to be integrated first into the AAPs and

ultimately into the MIPs, it is important

to prioritize on developing the most

decentralized plan first and thereafter

consolidating them into higher level plans.

Any deviation in this chronology would only

reduce the robustness of such plans and could

result in overlaps between interventions.

d) Incorporating NICRA lessons into NMSA:

A detailed assessment report to include the

findings and lessons from NICRA could be

documented and thereafter integrated with

the NMSA to enhance its effectiveness and

reduce overlaps between the two programmes.

Common feedback suggested that such a

report could also discuss the enabling factors

and barriers in terms of adaptation

technologies, institutional set up, financial

sources, etc. to be provided as inputs to the

States for their AAPs and MIPs.

e) Outlining roles and responsibilities:

The NMSA could provide a mandate for all

coordinating institutions to prepare DPRs

like in the case of NMSHE, outlining their

plans and strategies for a stipulated period.

Currently, a l though the Operat ional

Guidelines clearly identify institutions for

implementation, their roles are yet to be

highlighted.


Recommendations

a) Convergence with ongoing programmes:

Mission interventions heavily depend on the

ongoing flagship schemes and CSS like the

IWMP, MNREGS, RKVY, etc. for their

implementation. Hence commensurate efforts

towards facilitating effective convergence

between Mission interventions and DAC

programmes need to be ensured. This would

further ease monitoring progress achieved by

the Mission.

b) Coordination between different nodal

agencies: The District and State level nodal

bodies require great levels of synchronization

since the former's plans are expected to feed

into the latter for further consolidation into the

Implementation: Various partner Ministries and Departments, most important being the Ministry of Earth

Sciences (MoES), Ministry of Science & Technology (MST) and MoEF&CC; others include the CSIR, DBT and

DoST. Most timelines are between September 2010 and 2011.

Monitoring: MoEF&CC (international oversight); MST & MoES (technology oversight) and Principal Scientific

Advisor (S&T oversight)

Approval mechanism: Committee of Secretaries (CoS) comprising members of MoES, various arms of

Ministry of Science & Technology (MST), MoEF&CC, DOS and MEA. Please note that there is no fixed timeline for

COS meetings and this is done on a need-basis.

Coordination cell: Comprises of a nodal officer each in MST, MoEF&CC and MoES. The cell reports to the

oversight mechanism, COS and Prime Minister's Office (PMO).

Financing:

1. Within partner Ministries/Departments (estimated to be above Rs. 2,500 Crores within the MST and

MoES)2. Separate allocations to support research and analysis in areas associated with technology related

activities in the R&D sector: It is proposed that Rs. 150 Crores would be required for thethimplementation of the Mission for the remainder of the 11 Plan Period. An additional special

provision has been made for Rs. 150 Crores within the allocated fund of Rs. 11,028 Crores for the DoSTthfor the 12 Plan Period. Special allocations of Rs. 2,500 Crores are planned for this period to build

capacity for various Missions/sub-Missions.

There are several ongoing activities in partner

Ministries/departments which fall under

keydomains as mentioned, which indirectly

provide support to the NMSKCC. Therefore for the

purposes of this Study, progress up to March 2015

is tracked under each of these thematic areas, and

not in terms of individual actions being

undertaken by partner ministries and agencies.

That is, no specific mention is made of the

Ministry, department or agency under whose

aegis the initiative is being undertaken.

5.8 National Mission on Strategic Knowledge for Climate Change

32

The National Mission on Strategic Knowledge for

Climate Change (NMSKCC) was envisaged as a

support Mission for generating and providing

strategic knowledge that feeds into the other

seven Missions under the NAPCC. There is

increasing cognisance of the lacunae in and

impediments that limit the ability of a national

knowledge system to deliver the required

outcomes for effective response. Keeping these in

mind, the Mission objectives fall broadly within

the following domains: knowledge generation &

networks, institutional networks, S&T

innovation, institutional capacity & human

resource investment and cross-pollination across

Missions.

Introduction

Mission Overview


Kn

ow

led

ge

Ge

ne

rati

on

Ne

two

rks

Inst

itu

tio

na

l N

etw

ork

s

1.

Cre

ati

on

of

Reg

ion

al

Cli

ma

te M

od

els

(RC

Ms)

– d

evel

op

men

t o

f 4

-6 R

CM

s

pro

po

sed

ove

r 2

01

3-2

01

7;

3 o

f th

ese

hav

e b

een

co

mp

lete

d.

INC

CA

has

rele

ased

“C

lim

ate

Ch

ange

an

d

Ind

ia:

A

4X

4

asse

ssm

ent”

to

ad

dre

ss

con

cern

s re

gard

ing

the

effe

cts

of c

lim

ate

chan

ge o

n n

atu

ral r

eso

urc

es a

nd

live

lih

oo

ds.

31

2.

Sub

mis

sio

n o

f tec

hn

ica

l rep

ort

s -

par

t o

f im

ple

men

tati

on

of s

ub

-Mis

sio

ns

,

bet

wee

n 1

0 t

o 1

2 r

epo

rts

to b

e p

rep

ared

ove

r 2

01

3-2

01

7,

wit

h a

nn

ual

fre

qu

en

cy.

Re

lev

an

t M

inis

trie

s a

nd

D

ep

art

me

nts

h

ave

p

ub

lish

ed

17

tech

nic

al r

epo

rts

so fa

r.3

23

.O

bse

rva

tio

na

l sy

stem

s &

mo

del

s -

3 i

nit

iati

ves

led

by

th

e M

oE

S fo

r

mea

suri

ng

and

mo

nit

ori

ng

key

cli

mat

e/b

ioge

och

emic

al v

aria

ble

s

4.

Sect

ora

l im

pa

cts

of

clim

ate

ch

an

ge

- A

gro

-met

ero

logy

in

itia

tive

of

the

Mo

ES

in c

on

jun

ctio

n w

ith

th

e IM

D a

nd

agr

icu

ltu

ral

un

iver

siti

es a

re

pro

vid

ing

wea

ther

ad

vis

ory

ser

vic

es t

o f

arm

ers

bef

ore

var

iou

s st

ages

of

farm

ing.

5.

Est

ab

lish

ing

kn

owle

dg

e n

etw

ork

s3

3

a.N

etw

ork

s id

enti

fied

in

sel

ect

area

sto

be

anch

ore

d b

y a

co

mp

eten

t

lead

in

stit

uti

on

. N

etw

ork

s o

n c

lim

ate

chan

ge i

mp

acts

on

hea

lth

&

lon

g-te

rm c

han

ge i

n w

eath

er h

ave

bee

n p

rep

ared

wh

ile

tho

se o

n

coas

tal v

uln

erab

ilit

y a

nd

aer

oso

ls to

be

do

ne

by

mid

dle

of 2

01

5.

b.

Tw

o r

epo

rts

on

cli

mat

e ch

ange

im

pac

t o

n a

gric

ult

ure

, oce

an s

yste

ms

and

cli

mat

e m

od

elin

g ar

e b

ein

g p

rep

ared

.

1.

Net

wo

rks

bet

wee

n k

now

led

ge

inst

itu

tio

ns

a.A

Nat

ion

al K

no

wle

dge

Net

wo

rk (

NK

N)

has

bee

n s

et u

p i

n 2

01

1 b

y t

he

PSA

to

ser

ve a

s th

e u

nd

erly

ing

infr

astr

uct

ure

to

su

pp

ort

dat

a sh

arin

g &

coll

abo

rati

on

, as

pro

po

sed

by

the

Mis

sio

n.

b.

Th

e G

RID

GA

RU

DA

in

itia

tive

is

a co

llab

ora

tio

n o

f sc

ien

tifi

c, e

ngi

nee

rin

g

and

aca

dem

ic c

om

mu

nit

y t

o c

arry

ou

t re

sear

ch &

exp

erim

enta

tio

n o

n a

nat

ion

-wid

e gr

id. C

urr

entl

y, it

co

nn

ects

45

inst

itu

tio

ns

acro

ss 1

7 c

itie

s.

2.

Da

ta s

ha

rin

g &

acc

ess

a.

Nat

ion

al D

ata

Shar

ing

& A

cces

s P

oli

cy (

ND

SAP

) h

as b

een

lau

nch

ed, b

ut

the

pro

gres

s is

no

t kn

ow

n.

b.

An

u

pd

atab

le

and

in

tera

ctiv

e k

no

wle

dge

p

ort

al

on

cl

imat

e ch

ange

rese

arch

– f

ree

circ

ula

tio

n o

n d

eman

d w

ith

in t

he

gove

rnm

ent

has

bee

n

pro

po

sed

an

d y

et to

be

init

iate

d.

c.L

imit

ed,

bu

t fr

ee

acce

ss

env

isag

ed,

wit

h

no

n-g

ove

rnm

enta

l an

d

acad

emic

res

earc

h in

stit

uti

on

s as

'reg

iste

red

use

rs' –

yet

to b

e in

itia

ted

.

TA

BL

E 5

.8: T

RA

CK

ING

TH

E P

RO

GR

ES

S O

F N

MS

KC

C A

CR

OS

S K

EY

DO

MA

INS

33


31

Res

earc

h o

n m

on

soo

ns,

sea

-lev

el r

ise

& s

torm

su

rges

, ext

rem

e w

eath

er e

ven

ts (

Mo

ES)

, gla

cier

s (D

oST

), a

gric

ult

ure

(M

oA

), w

ater

res

ou

rces

(M

oW

R),

hu

man

hea

lth

& d

isea

ses

(Min

istr

y o

fH

ealt

h),

fo

rest

s &

bio

div

ersi

ty (

Mo

EF

&C

C)

and

en

ergy

(M

oP,

MN

RE

)3

2T

he

Mo

ES

and

var

iou

s as

soci

ated

au

ton

om

ou

s b

od

ies

are

the

mai

n d

rive

rs o

f p

rov

idin

g o

bse

rvat

ion

al s

yste

ms

and

mo

del

s. T

hey

wo

rk o

n p

roje

cts

wh

ich

are

no

t fu

nd

ed f

rom

th

e N

MSK

CC

corp

us,

bu

t su

pp

lem

ent

the

exis

tin

g d

atab

ase.

Ho

wev

er r

epo

rts

pu

bli

shed

un

der

eac

h o

f th

ese

pro

gram

mes

is c

ou

nte

d a

s a

Tec

hn

ical

Rep

ort

.3

3M

on

soo

n d

yn

amic

s, a

ero

sols

, oce

an &

co

stal

ch

ange

, lo

ng-

term

ch

ange

in e

cosy

stem

s, s

ecto

r sp

ecif

ic v

uln

erab

ilit

y &

ad

apta

tio

n

S&

T I

nn

ov

ati

on

Inst

itu

tio

na

l C

ap

aci

ty &

Hu

ma

n R

eso

urc

e I

nv

est

me

nt

1.

Tec

hn

olo

gy

a.

Fo

rmat

ion

o

f te

chn

olo

gy

w

atch

g

rou

ps

to

sele

ct

&

pri

ori

tise

tech

no

logy

: Of t

he

11

gro

up

s to

be

form

ed o

ver

the

per

iod

20

13

-20

17

,

2 h

ave

bee

n fo

rmed

for

sola

r an

d r

enew

able

en

ergy

.

b.

Org

anis

atio

ns

are

curr

entl

y t

rack

ing

tech

no

logy

so

luti

on

s o

n t

hei

r

ow

n a

cco

rd a

nd

pro

vid

e ad

vis

ory

su

pp

ort

as

and

wh

en n

eed

ed.

2.

S&T

Inn

ova

tio

n

a.O

per

atio

na

lise

d

thro

ugh

m

itig

atio

n

&

adap

tati

on

su

b-M

issi

on

s;

thC

SI

has

set

asi

de

11

% o

f th

e 1

1 F

ive

Year

Pla

n b

ud

get

for

mit

igat

ion

op

tio

ns.

b.

Oth

er e

ffo

rts

incl

ud

e N

atio

nal

Mis

sio

n o

n B

amb

oo

Ap

pli

cati

on

s fo

r3

4en

ergy

gen

erat

ion

an

d d

esal

inat

ion

of

coas

tal

wat

er t

hro

ugh

NIO

T,

Ch

en

na

i,

an

d

oth

er

pro

gra

mm

es

un

de

r D

oST

li

ke

Ad

ap

tati

on

&

Vu

lner

abil

ity

ass

essm

ents

.

1.

Inst

itu

tio

na

l Ca

pa

city

a.C

entr

es o

f E

xcel

len

ce (

Co

Es)

to

be

init

iate

d b

y le

vera

gin

g in

fras

tru

ctu

re

& c

apab

ilit

ies

of

exis

tin

g in

stit

uti

on

s. 1

1 p

rop

osa

ls t

o t

his

eff

ect

wer

e

sele

cted

, of w

hic

h 2

wer

e C

oE

s.

b.

Ind

o-G

erm

an C

entr

e fo

r Su

stai

nab

ilit

y (

IGC

S) s

et u

p i

n I

IT-C

hen

nai

,

fun

ded

by

th

e M

ST,

in c

oll

abo

rati

on

an

d p

art

fun

din

g w

ith

DA

AD

,

Ger

man

y f

or

five

res

earc

h p

roje

cts

in f

ou

r th

emat

ic a

reas

- e

ner

gy,

lan

d-u

se, w

aste

an

d w

ater

- a

rou

nd

su

stai

nab

ilit

y c

hal

len

ges

that

wil

l be

exac

erb

ated

by

cli

mat

e ch

ange

2.

Hu

ma

n R

eso

urc

e In

vest

men

t

a.C

lim

ate

Ch

ange

R

esea

rch

&

Fe

llo

wsh

ip

Pro

gram

me

to

be

init

iate

d

to

crea

te

spec

ial

fell

ow

ship

s at

th

e p

re

&

po

st-d

oct

ora

l le

vel

-

75

fell

ow

ship

s h

ave

bee

n a

war

ded

.

b.

Pro

cess

of

form

ula

tin

g p

rofe

sso

r ch

airs

fo

r th

e n

ext

5 y

ears

has

bee

n

init

iate

d.

Inst

itu

tio

ns

that

ca

n

tak

e o

n

ince

nti

ves

to

attr

act

you

ng

scie

nti

sts

for

trai

nin

g li

nk

ed t

o g

uar

ante

ed e

mp

loy

men

t to

bri

ng

in

qu

alit

y m

anp

ow

er a

re b

ein

g id

enti

fied

.

34

TA

BL

E 5

.8 (

con

clu

de

d)


34 N

atio

nal

In

stit

ute

of

Oce

an T

ech

no

logy

(N

IOT

), C

hen

nai

The NMSKCC was envisaged as a Mission to

provide inputs to other Missions. Currently,

various Ministries, Departments and agencies

conduct climate change related research,which is

shared only on a need basis. Hence there are no

directives for convergence between the NMSKCC

and other Missions. However, clear areas of

synergy can be identified with several Missions.

For example, cryosphere research (NMSHE),

adaptation & vulnerability assessment of climate

change impacts on agriculture (NMSA) and

hydrological modeling (NWM). Once an effective

data sharing mechanism through the NKN is fully

operationalised, it can act as a hub where

information can be shared and accessed.

4. There is also an understanding of the critical

role that the State governments can play in

the Mission implementation and the need for

t h e i r e n ro l m e n t i n to t h e N M S KC C .

For example, it is proposed that a NMSKCC cell

will be created at the State level, wherein all

knowledge generated will be made available

to the relevant State machinery.

5. While the NMSKCC was conceived as a

support Mission to other Missions, the status

on this seems unclear. There are very few

guidelines in this regard.

6. Convergence between the NMSKCC and

State-level initiatives is not mentioned.

The Mission could have an overarching

structure whereby specific State level needs

for strategic knowledge could have been

identified and thereby attention devoted to

these. The cognisance of SAPCC for instance

does not reflect in the NMSKCC.

7. While the Mission discusses collaborations

and partnerships for inter-disciplinary

research and international cooperation on

S&T through strategic alliances, little has

moved on this front. The only effort in this

regard has been taken by the MoES for

technology enhancement for forecasting by

working with universities abroad.

8. Private sector participation through PPP

models in areas such as SPV applications and

R&D in carbon capture have not been

explored.

9. Outreach of scientific information in a

de-mystified manner, to wider audiences is

one of the stated objectives of the Mission.

It was proposed that NGOs (already working

with MoEF&CC and MoST) could be apposite

channels. This is an area where attention must

be devoted.

35

Cross-Pollination across Missions

Conclusions

1. The greatest achievement of the NMSKCC is

the genuine attempt that has been made in

building human and institutional capacity

for knowledge generation. This includes

understanding the critical need to build

platforms for filling overall knowledge

gaps; data acquisit ion and sharing;

regional and sector specific impacts of

climate change and emphasising the need

to look at adaptation to climate change by

studying socio-economic sectors.

2. Another success has been the reliance

on existing knowledge institutions ,

with special ized core competencies

and platforms for undertaking R&D.

The decision to use the NKN as the

underlying infrastructure for data sharing

and collaboration is one such example.

3. Avoidance of duplication of efforts by

stock-taking and mapping in detai l

nuances of the work being undertaken by

each Ministry and Department is another

positive aspect of the NMSKCC.


36

6. RecommendationsThis Study draws key inferences from tracking progress and evaluating the implementation status of the

National Missions. Significant take-aways and prescriptive suggestions specific to the Missions have been

presented alongside each Mission summary discussed in Chapter 5. A few overarching recommendations

commonly observed across all eight Missions that could be suitably absorbed into their planning and

implementation are discussed in this section.

Respond to administrative challenges in mainstreaming

The National Missions significantly explore the options of mainstreaming their activities through

existing infrastructure and financial resources. However, such an arrangement is expected to have its

own set of challenges as well. As mentioned in earlier sections of this report, existing governing

structures are observed to be entirely occupied with, at times even overstrained by, their in-house

programmes and hence climate change activities could assume lesser importance. Thereforeit would be

worthwhile to establish an exclusive executive body fairly unbridled by commitments to regular

departmental duties, to supervise Mission activities, especially in the case of those Missions yet to

achieve significant progress. Therefore it is acknowledged that while the existing system could

considerably contribute to the process of mainstreaming, there has to be a distinct human resource

mandate to secure their time and focus (and incentivize them as well) on the Mission in order to maintain

the required administrative momentum.

Joint financing channels for improving overall take-up

A common viewpoint shared by experts is that any Mission might achieve better take-up at the State level

if its components are converted into Centrally Sponsored Schemes. This is because of the conventional

financing and implementation channels that it could adopt, thereby reducing barriers to its progress.

This way, the Mission could assume the role of a more compliable mandate than that of a supporting

policy. Moreover, States can be better motivated to jointly invest efforts towards local capacity building in

technical and manpower aspects, which cannot be stressed sufficiently in this context.

Enable enforcement through robust regulatory environment

While some Missions have performed better in achieving their targets, others are yet to gain

similar momentum. This can be related with the availability of a robust regulatory and policy

environment provided for such programmes. The NMEEE and JNNSM are typical examples of this kind.

For other Missions, which are still at a nascent stage of implementation, setting up of a comparable

regulatory framework at this juncture would help enhancing the efficacy of its enforcement.

Establishing a corresponding framework at the State level will enhance the absorptive capacity of such

Missions. Enforcement and subsequent realization of Mission goals would remain as laggards until such

mechanisms are put in place.


37

Formalise and improve information systems

Several dispersed initiatives are currently being undertaken at decentralized levels, which are relevant to

Mission agendas (for instance, in areas of resilience building,empowering local institutions and

promoting resource conservation). However, these are not necessarily motivated by a specific climate

agenda, but largely through the mandate of ongoing development programmes, or the relatively more

proactive engagement of State and Local governments. There is inadequate capture of such efforts at the

District/State level to highlight relevant developments to the Centre. It is also recommended that

Departments regularly report co-benefits of their Mission schemes such as the resultant carbon savings,

etc. along with their progress updates to the PMCCC.


38

7. ConclusionThis Study, through its tracking of Mission progress and functional assessment of the same, examines

instances of “implementation deficit” (Makinde, 2005)that developing countries often experience due to

gaps between strong policies and their ground-level impacts. This goes to say that mere designing of

effective policies might not suffice in creating the desired effects but providing a conducive operational

environment to implementing the policies is key to it. It also highlights the need to recognize conscious

departures from a target-centric approach to the Missions' implementation. Most of the Missions

currently are reported in consonance with the targets outlined in the Mission document. However it

works to the Government's own interest to also highlight their progress and achievements in terms of the

policy environment and supporting infrastructure that has been developed to harmonize the functioning

of these Missions. Needless to say, this provides a more holistic image of the Government's initiatives in

the context of policy enforcement.

Knowing that the Missions are in place as dynamic policy documents, the way forward for them would be

for the Government to undertake necessary steps to provide timely and adequate support systems.

Given the scale of activities planned for climate mitigation and adaptation through these Missions and the

SAPCCs, the Government could also bundle their initiatives in an astute manner, thereby projecting its

achievements to a wide spectrum of stakeholders.

As highlighted by this evaluation of the NAPCC's implementation, a major portion of the Missions could

comprise of existing development programmes with renewed designs and comprehensive

implementation frameworks. This is a call for detailed mapping of overlap areas between Departmental

sectoral schemes with the National Missions as well as the SAPCCs. Such an exercise would only provide

more clarity on matching work areas with resources as well as identifying initiatives that require

additional resources, either through multi and bi-laterals or through dedicated climate funds. This would

work to the nation's benefit in the light of the upcoming Paris Summit 2015 where India would be

expected to indicate those intended adaptation measures that are to be undertaken with domestic

resources and those which require international support. This reflects a more pragmatic approach to

sourcing finances for the Missions as a key step to attaining the climate objectives set for the nation.


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(2009). The Guidelines on State Compensatory Afforestation Fund Management and Planning Authority

(State CAMPA). Ministry of Environment and Forests (MoEF).

(2010). National Mission For Sustainable Agriculture - Strategies for Meeting the Challenges of Climate

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(2010). The National Mission for a Green India . Ministry of Environment and Forests (MoEF).

(2014). Operational Guidelines, NMSA. Department of Agriculture and Cooperation.

(2014). The Final Report of the Expert Group on Low Carbon Strategies for Inclusive Growth. Planning

Commission, GoI.

Andhra Pradesh Electricity Regulatory Commission. (2014). Draft Amendment for RPO Regulation.

APERC.

Atteridge, A., Shrivastava, M. K., Pahuja, N., & Upadhyay, H. (2012). Climate Policy in India: What Shapes

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Basu, S. (2011). India Solar Policy: Elements Casting Shadow on Harnessing the Potential. IDFC.

Bridge to India. (2013). Bankability and Debt Financing for Solar Projects in India. New Delhi: Bridge to

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Bureau of Energy Efficiency. Retrieved from www.bee.gov.in

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Byravan, S., & Rajan, C. (2012, July). An Evaluation of India's National Action Plan on Climate Change.

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DAC. (2014). Department of Agriculture and Cooperation, MoA. National Mission for Sustainable

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Energy Sector Assistance Programme. (2013). Paving the Way for a Transformational Future: Lessons

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40


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41


The Study team interacted with key government officials, including Mission Directors, Advisors and other

relevant representatives, who have shared their views and provided invaluable inputs on the progress of

the National Missions. The following is a list of nodal Ministries, Departments, technical secretariats and

affiliate institutions contacted for the purpose of this Study:

Bureau of Energy Efficiency

Central Public Health and Environmental Engineering Organisation (CPHEEO), MoUD

Central Research Institute for Dryland Agriculture

Climate Change Cell, Central Water Commission

Climate Change Cell, Department of Agriculture and Cooperation

Climate Change Department, MoEF&CC

Commissionerates of Agriculture in Tamil Nadu, Karnataka, Madhya Pradesh & Rajasthan

Department of Agriculture and Cooperation, Ministry of Agriculture

Department of Science & Technology

Energy Efficiency Services Limited

Housing and Urban Development Corporation Ltd. (HUDCO), New Delhi

Indian Council of Agricultural Research

Institute of Metro and Rail Technology (IMRT), Hyderabad

Ministry of Earth Sciences

Ministry of Environment, Forest & Climate Change

Ministry of Housing and Urban Poverty Alleviation

Ministry of New and Renewable Energy

Ministry of Urban Development

Mission Secretariat, National Water Mission, Ministry of Water Resources

National Institute of Hydrology

Project Management Unit for JnNURM Mission Directorate, MoUD

Public Health Engineering Division, MoUD

Solar Energy Corporation of India

Town and City Planning Organisation (TCPO), MoUD

Urban Transport Division, MoUD

The following is a of list domain experts from the academia, research institutions, NGOs and other private

sector organisations that the team reached out to during the course of the Study.

1. Dr. Arivudai Nambi. A, Strategy Head, Vulnerability and Adaptation, World Resource Institute

2. Dr. A.L. Ramanathan, Professor, School of Environmental Sciences, Jawaharlal Nehru University

3. Mr. Anil Kumar Gupta, Director, Wadia Institute of Himalayan Glaciology

4. Mr. Asaf Maman, Director of Solar Commercial Development, Focal Energy

5. Mr. Andren Jeffries, Energy Head (India), Asian Development Bank

6. Mr. Chetan Krishna, MIT

7. Ms. Disha Banerjee, National Solar Energy Federation of India (NSEFI)

42

Annexure: List of Experts


1.

2.

3.

4.

5.

6.

7.

8.

9.

10.

11.

12.

13.

14.

15.

16.

17.

18.

19.

20.

21.

22.

23.

24.

25.

Ms. Divya Sharma, Fellow, The Energy Resources Institute (TERI), New Delhi

Dr. P.P. Dhyani, Director, GB Pant Insitute of Himalayan Environment and Development

Mr. Girish Narang, Managing Director, Tripower Solar Pvt. Ltd.

Mr. Hemanshu Sugandhi, Senior Manager, Business Development and Strategy, SolarArise

Mr. Jagdish Agarwal, Senior Vice President, Welspun Renewables Energy Pvt. Ltd.

Ms. Kanika Chawla, Junior Research Associate, Council on Energy, Environment and Water

(CEEW), New Delhi

Ms. Kanika Kalra, Urban Transport Expert, Institute of Urban Transport, New Delhi

Dr. V. B. Mathur, Director, Wildlife Institute of India

Prof. Meenakshi Dhote, Head, Department of Environmental Planning, School of Planning and

Architecture (SPA), New Delhi

Mr. Mohan Reddy, Programme Officer, Inspire International

Mr. Mohua Mukherjee, Senior Energy Specialist, World Bank

Ms. Neha Pahuja, Research Associate, TERI, New Delhi

Mr. Neeraj Gupta, Pricewaterhouse Coopers (PWC)

Mr. Ravi Ranjan, Director, Sustainable Environment Resource Institute, (Cities Network

Campaign), Noida

Dr. Sanjukkta Bhaduri, Head, Department of Urban Planning, SPA, New Delhi

Dr. Sathyakumar, Scientist, Wildlife Institute of India

Prof. H. M. Shivanand Swamy, Faculty of Planning, Centre for Environmental Planning and

Technology (CEPT), Ahmedabad

Mr. Shirish Garud, Associate Director, Energy-Environment Technology Development Division,

TERI, New Delhi

Mr. Shirish Sinha, Deputy Director of Cooperation, Swiss Agency for Development and

Cooperation (SDC)

Ms. Shubhra Jain, Independent Consultant on Urban Sanitation

Mr. Timon Herzog, Principal Advisor, ComSolar, Deutsche Gesellschaft fur Internationale

Zusammenarbeit (GIZ) GmbH

Prof. Usha P. Raghupathi, Professor, National Institute of Urban Affairs (NIUA), New Delhi

Dr. Vaibhav Chaturvedi, Research Fellow, CEEW, New Delhi

Mr. K.R. Viswanathan, International Climate Adaptation Specialist, Practical Action Consulting

Mr. Yash Trivedi, Business Development Executive, Solpower Green Pvt. Ltd.

43


8.

9.

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11.

12.

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14.

15.

16.

17.

18.

19.

20.

21.

22.

23.

24.

25.

26.

27.

28.

29.

30.

31.

32.

For further details on this Study, please contact Vivek Venkataramani ([email protected]), Researcher in the Environment and Climate Change Programme at the Centre for Development Finance (CDF), IFMR LEAD.L E A D