Is India’s Ujjwala cooking gas program a success or failure?

By Abhishek Kar, Postdoctoral Research Scientist at Columbia University, USA, and IIASA Young Scientists Summer Program (YSSP) alumnus.

Abhishek Kar shares his thoughts on the Indian government’s Ujjwala program, which aims to scale up household access to Liquefied Petroleum Gas (LPG) for clean cooking.

© Kaiskynet | Dreamstime.com

About 2.9 billion people depend on burning traditional fuels like firewood rather than modern cooking fuels like gas and electricity to cook their daily meals. The household air pollution caused when these fuels are burned, along with the resultant exposure to kitchen smoke causes several respiratory and other diseases. It is estimated that between 2 and 3.6 million people die every year due to lack of access to clean cooking fuels. It also has severe environmental effects like forest degradation and contributes to climate change. To address these challenges, the Indian Government launched a massive program called Pradhan Mantri Ujjwala Yojana (PMUY, or Ujjwala) to scale up household access to Liquefied Petroleum Gas (LPG) in May 2016.

My IIASA Young Scientists Summer Program (YSSP) project under Shonali Pachauri’s supervision was about analyzing consumption patterns of LPG in rural India. We looked at whether there was any differences in consumption patterns between the Ujjwala beneficiaries and general consumers. The analysis formed part of my PhD research and was eventually published as the cover story for the September 2019 issue of the journal, Nature Energy. The journal also invited us to write a policy brief, which was published in January 2020. The study’s findings received widespread media attention, especially in India. When I talk to journalists, they often ask whether the Ujjwala program is a success or a failure. I would like to use this opportunity to clear common misconceptions and share my thoughts.

The Ujjwala program’s original mandate was to tackle the challenge of “lack of access to clean fuel” and to make LPG affordable for poor women. The program provided capital subsidies to this end. Unfortunately, the policy document neither discussed usage of LPG as an exclusive or primary cooking fuel, nor did it provide any incentive for regular use (barring the universal LPG cylinder subsidy that is provided to everyone). The program was ambitious in terms of both scale and timeline, and fulfilled its original aim of providing LPG connections for millions of poor women.

Current debates around the program’s failure to result in smokeless kitchens are happening only because Ujjwala succeeded in fulfilling its original mandate of ensuring physical access. In my opinion, it is truly a remarkable achievement to have reached out to 80 million poor women within 40 months. The process not only involved massive awareness generation and community mobilization, but also ramping up the supply chain to meet increased demand. While I have a lot to say about how Ujjwala can be improved, I think it would be unfair to call it a failure. Access is the first step towards transition to clean fuels, and at least in this respect, it was an extraordinary success, making it a model of energy access for developing countries.

Our research shows that Ujjwala was able to attract new consumers rapidly, but those consumers did not start using LPG on a regular basis. Based on the literature and my own experience, there are five reasons why regular LPG use is a challenge for Ujjwala consumers, and the scheme did not have any specific provisions to effectively address them.

First, rural communities generally have easy access to free firewood, crop residues, cattle dung, etc. So why would they start paying for commercial fuel, when free fuel is readily available for cooking?

Secondly, Ujjwala (bravely) targeted poor women, who generally have limited disposable cash and seasonal, agriculture linked fluctuations in income. If there is no additional income, what costs would a poor family on an already tight budget have to cut to afford such a regular additional expense? While the program has made a 5 kg cylinder option available in response to this issue, the impact on LPG sales is still unknown.

Thirdly, home delivery of LPG cylinders is a challenge in most rural areas, as the cost of delivery for LPG distributors often outweighs the commission they receive. If there is no delivery option, poor rural families who often don’t have access to transport would need to arrange for a cylinder to be picked up from a far-off retail outlet. Oil Marketing Companies have vigorously been pushing for home delivery, but unless there are explicit incentives for this, the situation is unlikely to improve.

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In the fourth place, gender dynamics make the situation even more complicated. Men are often financial decision makers who have to make budget cuts, while women are the primary beneficiaries of LPG in terms of a quick and smokeless cooking experience, with the side benefit of avoiding the drudgery of fuelwood collection. The laudable effort of the LPG panchayat platform, where women share their success stories and strategies to overcome opposition within their homes, is a step in the right direction, but it is unlikely that this will be sufficient to tackle a deep-rooted societal problem.

Lastly, and perhaps most importantly, people will have to stop using mud stoves and start using LPG stoves, which may involve real (or, perceived) changes in the taste, texture, look, and size of food items. As a student of habit change literature, I am surprised that anyone expected that such a switch would not be accompanied by behavior change interventions.

Ultimately, the Ujjwala scheme provided incentives to reduce the burden of the capital cost of LPG connections, and poor female consumers responded to it positively. This is a successful first step towards clean cooking energy transition. However, there were no scheme incentives to promote use, except general LPG subsidies, which is available to all, including the urban middle class. Consumers simply decided that the transition to LPG through regular purchase of LPG refills was not worth it, and did not take the next step. I would however not call this a failure of Ujjwala, as that was never the original program objective.

We have to acknowledge that Ujjwala’s phenomenal success in providing access to clean fuel has put the spotlight on its ineffectiveness to ensure sustained regular use. If you ask me, this is a classic case of the glass half-full or half-empty scenario. Or, as my PhD supervisor at the University of British Columbia, Hisham Zerrifi, puts it: “It depends!”

References:

[1] Kar A, Pachauri S, Bailis R, & Zerriffi H (2019). Using sales data to assess cooking gas adoption and the impact of India’s Ujjwala program in rural Karnataka. Nature Energy DOI: 10.1038/s41560-019-0429-8 [pure.iiasa.ac.at/15994]

Note: This article gives the views of the author, and not the position of the Nexus blog, nor of the International Institute for Applied Systems Analysis.

African cities are critical to global climate mitigation

By Chibulu Luo, PhD student at the University of Toronto (Civil Engineering) and 2016 Young Scientists Summer Program (YSSP) participant.

Luo’s recent publication in the Journal of Cleaner Production considers the needs of the poorest and most vulnerable communities when exploring policy insights for Dar es Salaam’s  energy transition.

Global discourse on sustainability rarely focuses on the Africa region as a key player in the global transition towards a cleaner low-carbon energy future. Filling this critical gap in the research is what has stimulated my doctoral studies.

Dar es Salaam © Timwege | Dreamstime

According to a recent report from the International Energy Agency, the Africa region contributed only 3.7% towards global energy-related GHG emissions in 2018, which perhaps explains why the region has remained largely ignored in current research on energy. However, with colleagues at the University of Toronto and Ontario Tech University, I assert that the growth of large cities such as Dar es Salaam should be critically considered in global efforts on climate change mitigation. My recently published paper estimates to the year 2050, the potential changes in residential energy use and GHG emissions in Dar es Salaam, among Africa’s most populous and fastest-growing cities. Like many African cities,contributes little to global GHG emissions; however, our paper projects a substantial increase in future emissions by the year 2050 – up to 4 to 24 times– which is quite overwhelming. According to our findings, this jump in emissions is due to a higher urban population in 2050 (expected to triple from 5 million in 2015, to as much as 16 million in 2050), and increased energy access and electricity consumption.

In developing these future estimates, we used the Shared-Socio-Economic Pathways (SSPs), developed by IIASA researchers, as a guiding narrative. While there may be some uncertainties with projecting GHG emissions pathways several years into the future, our findings could derive insights to the emissions pathways of other large African cities, and the critical role that these cities can play in global efforts to achieve the 1.5-degree, or even, 2-degree global warming target.

© Chibulu Luo

I first heard about the SSPs as a participant in the IIASA YSSP in 2016; this period was a tremendous time of growth and reflection in terms of my research direction. The opportunity to work amongst such a talented group of scientists in a collaborative environment and on issues that are globally relevant was an unforgettable experience. I especially enjoyed working with colleagues in the IIASA Risk and Resilience Program, where some of my early research ideas were formulated. At that time, I focused largely on resilience measures for infrastructure development in African cities, including Dar es Salaam.

 

 

Note: This article gives the views of the author, and not the position of the Nexus blog, nor of the International Institute for Applied Systems Analysis.

More updates from IIASA alumni or information on the IIASA network may be found here.

Climate change or behavior change?

By Leila Niamir, post-doctoral researcher at the Mercator Research Institute on Global Commons and Climate Change (MCC), Germany and IIASA YSSP alumna.

© Cienpies Design Illustrations | Dreamstime

 

Weather patterns and events are changing and becoming more extreme, sea levels are rising, and greenhouse gas emissions are now at their highest levels in history[1]. Climate change is affecting every individual in every city on every continent. It imposes adverse impact on people, communities, and countries, disrupting regional and national economies.

Climate change mitigation refers to efforts to reduce or prevent emissions of greenhouse gases to limit the magnitude of long-term climate change. Human consumption, in combination with a growing population, contributes to climate change by increasing the rate of greenhouse gas emissions. Over the last decade, instigated by the Paris Agreement, the efforts to limit global warming have been expanding. Significant attention is being devoted to new energy technologies on both the production and consumption sides, however, changes in individual behavior and management practices as part of the mitigation strategy are often neglected[2]. This might derive from the complex nature of human which makes explaining and affecting human behavior a difficult task. As a result, quantitative tools to assess household emissions, considering the diversity of behaviors and a variety of psychological and social factors influencing them beyond purely economic considerations, are scarce. Policymakers would benefit from reliable decision supporting tools that explore the interaction of economic decision-making and behavioral heterogeneity in households behavioral and lifestyle changes, when testing climate mitigation policies (e.g. carbon pricing, subsidies)[3].

To address this issue, during my PhD research I studied the potential of behavioral changes among heterogeneous households regarding energy use and their role in mitigating climate change. By designing and conducting comprehensive household surveys, it was explored how individuals choose to change their energy behaviour and what factors trigger or inhibit these choices[4]. Decision support tools are designed to study large-scale regional effects of individual actions, and to explore how they may change over time and space. The model explicitly treats behavioral triggers and barriers at the individual level, assuming that energy use decision making is a multi-stage process. This theoretically and empirically grounded simulation model offers policymakers ways to explore various policy portfolios by running diverse micro and macro scenarios.

This model was further developed during my collaboration with the IIASA the Young Scientists Summer Program (YSSP), to estimate macro impacts of individuals’ energy behavioral changes on carbon emissions[5]. Within this research, we illustrate that individual energy behavior, especially when amplified through social context, shapes energy demand and, consequently, carbon emissions. Our results show that residential energy demand is strongly linked to personal and social norms. When assessing the cumulative impacts of these behavioral processes, we quantify individual and combined effects of social dynamics and of carbon pricing on individual energy efficiency and on the aggregated regional energy demand and emissions.

In summary, mitigating climate change requires massive worldwide efforts and strong involvement of regions, cities, businesses and individuals, in addition to the commitments at the national levels. We should always keep in mind that every single behavior matters. In the transition to a sustainable and resilient society, we –as individuals- are more than just consumers.

Note: This article gives the views of the author, and not the position of the Nexus blog, nor of the International Institute for Applied Systems Analysis.

[1] Climate Action– United Nations Sustainable Development Goals https://www.un.org/sustainabledevelopment/climate-change/
[2] Creutzig, F., et al. (2018). Towards demand-side solutions for mitigating climate change. Nature Climate Change 8, 268-271; Grubler, A., et al. (2018). A low energy demand scenario for meeting the 1.5 degrees C target and sustainable development goals without negative emission technologies. Nature Energy 3, 515-527; Creutzig, F., et al. (2016). Beyond Technology: Demand-Side Solutions for Climate Change Mitigation. Annual Review of Environment and Resources, Vol 41 41, 173-198
[3] Niamir, L. (2019). Behavioural Climate Change Mitigation: from individual energy choices to demand-side potential (University of Twente); Creutzig, F., et al. (2018). Towards demand-side solutions for mitigating climate change. Nature Climate Change 8, 268-271; Niamir, L., et al. (2018). Transition to low-carbon economy: Assessing cumulative impacts of individual behavioural changes. Energy Policy, 118; Stern N. Economics: Current climate models are grossly misleading. Nature 530(7591):407–9.
[4] Niamir, L. et al. (2020). Demand-side solutions for climate mitigation: Bottom-up drivers of household energy behaviour change in the Netherlands and Spain. Energy Research & Social Science, 62, 101356.
[5] The results of this collaboration was presented at Impacts World 2017 and won the best prize, and also published at Climatic Change Journal.

Beyond averages and aggregates

By Shonali Pachauri, Senior Researcher in the IIASA Energy Program

Shonali Pachauri explains why data, indicators, and monitoring at finer scales are important to ensure that everyone benefits from policies and efforts aimed at achieving national and global development goals.

A world where no one is left behind by 2030, is the promise nations have made by adopting the United Nations’ Agenda for Sustainable Development. But how does one ensure that no one is left behind? It requires designing inclusive policies and programs that target the most vulnerable and marginalized regions and populations. Sound data and indicators underpin our current understanding of the status of development and are an important part of periodic reviews to determine the direction and pace of progress towards achieving agreed goals. These form the basis of informed decisions and evidence-based policymaking. While an exhaustive list of indicators has been prescribed to monitor progress towards the globally agreed goals, these have been largely defined at a national scale. These goals rely overwhelmingly on simple averages and aggregates that mask underlying variations and distributions.

Indian woman walking home with fire wood © Devy | Dreamstime.com

Recent work I’ve been involved in makes the pitfalls of working with averages and aggregates alone abundantly clear. They can obscure uneven patterns of changes and impacts across regions and groups within the same nation. The overall conclusion of this work is that, even if the globally agreed goals are met by 2030, this is no guarantee that everyone will benefit from their achievement.

A recent Nature Energy – News & Views piece I was invited to write reports on a study that assessed the impacts of China’s recent coal to electricity program across villages in the Beijing municipal region. The program subsidizes electricity and electric heat pumps and has been rolling out a ban on coal use for household heating. The study found that the benefits of the program to home comfort, air quality, and wellbeing varied significantly across rich and poor districts. In poor districts, the study found that the ban was not effective as poor households were still unable to afford the more expensive electric heating and were continuing to rely on coal. Studies such as this one that help us understand how and why benefits of a program may vary across regions or population groups can aid policy- and decision makers in formulating more fair and inclusive policies.

In other recent research carried out with colleagues in the IIASA Energy Program, the Future Energy Program at the Fondazione Eni Enrico Mattei (FEEM) in Italy, and the Institute for Integrated Energy Systems at the University of Victoria, Canada, we developed a detailed satellite nightlights derived dataset to track progress with providing electricity access at a sub-national level in Africa. We found that while progress with electrification between 2014 and 2018 varied across nations, at a sub-national provincial level, disparities were even more pronounced. Even more surprising, while electricity access is generally higher and easier to extend in urban areas, we found urban pockets where access has stagnated or even worsened. This correlated with areas where in-migration of populations had been high. These areas likely include urban slums or peri-urban regions where expanding electricity access continues to be challenging. Furthermore, our analysis shows that even where access has been extended, there are regions where electricity use remains extremely low, which means that people are not really benefitting from the services electricity can provide.

In a final example, of research carried out with collaborators from the University of British Columbia and the Stockholm Environment Institute, we evaluated a large nationwide program to promote cooking with liquefied petroleum gas (LPG) in Indian households to induce a shift away from the use of polluting solid fuels. While this program specifically targets poor and deprived, largely rural households, our assessment found that although there has been an unprecedented increase in enrollments of new LPG customers under the program, this has not been matched by an equal increase in LPG sales. In fact, we found consumption of LPG by program beneficiaries was about half that of the average rural consumer. Moreover, when we examined how purchases were distributed across all new consumers, we found that about 35% of program beneficiaries purchased no refills during the first year and only 7% bought enough to substitute half or more of their total cooking energy needs with LPG. Clearly, the health and welfare benefits of a transition to cleaner cooking are still to be realized for most people covered by this program.

Analyses, such as the examples I’ve discussed here, clearly highlight that we need data, indicators, and monitoring at much finer scales to really assess if all regions and populations are benefitting from policies and efforts to achieve national and globally agreed development goals. Relying on aggregates and averages alone may paint a picture that hides more than it reveals. Thus, without such finer-scale analysis and an understanding of the distributional impacts of policies and programs, we may end up worsening inequalities and leaving many behind.

 References:

[1] Pachauri S (2019). Varying impacts of China’s coal ban. Nature Energy 4: 356-357. [pure.iiasa.ac.at/15905]

[2] Falchetta G, Pachauri S, Parkinson S, & Byers E (2019). A high-resolution gridded dataset to assess electrification in sub-Saharan Africa. Scientific Data 6 (1): art. 110. [pure.iiasa.ac.at/15982]

[3] Kar A, Pachauri S, Bailis R, & Zerriffi H (2019). Using sales data to assess cooking gas adoption and the impact of India’s Ujjwala program in rural Karnataka. Nature Energy [pure.iiasa.ac.at/15994]

Note: This article gives the views of the author, and not the position of the Nexus blog, nor of the International Institute for Applied Systems Analysis.

Fostering cooperation, good governance, and connectivity in the digital era

By Dmitry Erokhin, Research Assistant in the IIASA Advanced Systems Analysis Program

Dmitry Erokhin shares his thoughts on the promotion of economic progress and security through energy cooperation, good governance, and connectivity in the digital era.

Nadejda Komendantova and Dmitry Erokhin at the OSCE EEF meeting in Bratislava © Dmitry Erokhin

From 27 to 28 May 2019, Bratislava hosted the Second Preparatory Meeting of the 27th Economic and Environmental Forum of the Organization for Security and Cooperation in Europe (OSCE EEF) on “Promoting economic progress and security in the OSCE area through energy cooperation, new technologies, good governance and connectivity in the digital era”.

As part of my work on digitalization in Greater Eurasia, I was particularly interested in attending this meeting.

A major part of the event was devoted to questions surrounding energy security, which is a very important factor of cooperation in the OSCE area. All 57 participating states across North America, Europe, and Asia are interested in stable energy supply. Doing energy right is a way to promote progress, security, and prosperity. Orientation towards sustainable development, limiting the use of conventional energy sources, oil conflicts, and cyber attacks make both energy demanders and suppliers search for new solutions. In this regard, the use of renewable resources promises long-term benefits in terms of energy efficiency, new jobs, as well as a secure and resilient energy sector. This is however not possible without peace, which makes the protection of infrastructure crucial. There is no prosperity without peace and no peace without prosperity.

I found it particularly valuable that new technologies were included in the discussion. Blockchain – a system in which a record of transactions made in bitcoin or another cryptocurrency are held across several computers that are linked in a peer-to-peer network – along with big data, are creating new opportunities in the energy sector, for example, in terms of new forms of energy trading. However, they can also pose some risks as they create certain dependencies, thus raising questions of sustainability. For instance, automated driving raises many regulatory issues on how to ensure against cyber attacks and missiles, or how to divide responsibilities between producers and users. Advanced technologies have to be employed safely and efficiently. International organizations could play a vital role in enacting common standards and regulatory norms for digitalization and connectivity in this regard. One grand example here is the single window recommendation, which is a trade facilitation idea that enables international traders to submit regulatory documents at a single location. The idea is that such a system would facilitate trade through good governance.

The establishment of regional communication platforms and the development of science, research, and innovations are of particular importance. Key agents need to talk about secure and clean energy. This could be achieved through intra-institutional cooperation and inclusive dialogue. I believe that institutions like IIASA can play a huge role here.

Talking about new technologies, it is an important task to conduct studies on barriers to trade, especially in the context of blockchain and machine learning technologies in digital trade in order to detect inefficiencies at borders and improve market access. In the energy field, there are many controversial estimates (simultaneously in favor of conventional and renewable energy sources), which also make independent reputable studies essential.

Nadejda Komendantova, a researcher with the Advanced Systems Analysis Program at IIASA also represented the institute at the OSCE meeting, where she moderated a session on protecting energy networks from natural and man-made disasters. The sessions’ participants discussed the impact of these factors on energy security, analyzed opportunities and threats for secure energy networks connected with new technologies, raised questions of resilience, and talked about the mitigation of threats through effective policies and cooperation. The OSCE Critical Energy Infrastructure Protection (CEIP) Digital Training Platform was presented during the session.

To conclude, I would like to emphasize that we need more such constructive and fruitful discussions to catalyze trust, growth, security and connectivity. Partnerships create political will and make open dialogue and mutual support very important. I believe that organizations like IIASA are key to making this possible.

Note: This article gives the views of the author, and not the position of the Nexus blog, nor of the International Institute for Applied Systems Analysis.