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.

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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.

5 years of Vietnam membership at IIASA

Tran Thi Vo-Quyen, IIASA guest research scholar from the Vietnam Academy of Science and Technology (VAST), talks to Professor Dr. Ninh Khac Ban, Director General of the International Cooperation Department at VAST and IIASA council member for Vietnam, about achievements and challenges that Vietnam has faced in the last 5 years, and how IIASA research will help Vietnam and VAST in the future.

Professor Dr. Ninh Khac Ban, Director General of the International Cooperation Department at VAST and IIASA council member for Vietnam

What have been the highlights of Vietnam-IIASA membership until now?

In 2017, IIASA and VAST researchers started working on a joint project to support air pollution management in the Hanoi region which ultimately led to the successful development of the IIASA Greenhouse Gas – Air  Pollution Interactions and Synergies (GAINS) model for the Hanoi region. The success of the project will contribute to a system for forecasting the changing trend of air pollution and will help local policy makers develop cost effective policy and management plans for improving air quality, in particular, in Hanoi and more widely in Vietnam.

IIASA capacity building programs have also been successful for Vietnam, with a participant of the 2017 Young Scientists Summer Program (YSSP) becoming a key coordinator of the GAINS project. VAST has also benefited from two members of its International Cooperation Department visiting the IIASA External Relations Department for a period of 3 months in 2018 and 2019, to learn about how IIASA deals with its National Member Organizations (NMOs) and to assist IIASA in developing its activities with Vietnam.

What do you think will be the key scientific challenges to face Vietnam in the next few years? And how do you envision IIASA helping Vietnam to tackle these? 

In the global context Vietnam is facing many challenges relating to climate change, energy issues and environmental pollution, which will continue in the coming years. IIASA can help key members of Vietnam’s scientific community to build specific scenarios, access in-depth knowledge and obtain global data that will help them advise Vietnamese government officials on how best they can overcome the negative impact of these issues.

As Director General of the International Cooperation Department, can you explain your role in VAST and as representative to IIASA in a little more detail?

In leading the International Cooperation Department at VAST, I coordinate all collaborative science and technology activities between VAST and more than 50 international partner institutions that collaborate with VAST.

As the IIASA council representative for Vietnam, I participate in the biannual meeting for the IIASA council, I was also a member of the recent task force developed to implement the recommendations of a recent independent review of the institute. I was involved in consulting on the future strategies, organizational structure, NMO value proposition and need to improve the management system of IIASA.

In Vietnam, I advised on the establishment of a Vietnam network for joining IIASA and I implement IIASA-Vietnam activities, coordinating with other IIASA NMOs to ensure Vietnam is well represented in their countries.

You mentioned the development of the Vietnam-IIASA GAINS Model. Can you explain why this was so important to Vietnam and how it is helping to improve air quality and shape Vietnamese policy around air pollution? 

Air pollution levels in Vietnam in the last years has had an adverse effect on public health and has caused significant environmental degradation, including greenhouse gas (GHG) emissions, undermining the potential for sustainable socioeconomic development of the country and impacting the poor. It was important for Vietnam to use IIASA researchers’ expertise and models to help them improve the current situation, and to help Vietnam in developing the scientific infrastructure for a long-lasting science-policy interface for air quality management.

The project is helping Vietnamese researchers in a number of ways, including helping us to develop a multi-disciplinary research community in Vietnam on integrated air quality management, and in providing local decision makers with the capacity to develop cost-effective management plans for the Hanoi metropolitan area and surrounding regions and, in the longer-term, the whole of Vietnam.

About VAST and Ninh Khac Ban

VAST was established in 1975 by the Vietnamese government to carry out basic research in natural sciences and to provide objective grounds for science and technology management, for shaping policies, strategies and plans for socio-economic development in Vietnam. Ninh Khac Ban obtained his PhD in Biology from VAST’s Institute of Ecology and Biological Resources in 2001. He has managed several large research projects as a principal advisor, including several multinational joint research projects. His successful academic career has led to the publication of more than 34 international articles with a high ranking, and more than 60 national articles, and 2 registered patents. He has supervised 5 master’s and 9 PhD level students successfully to graduation and has contributed to pedagogical texts for postgraduate training in his field of expertise. 

Notes:
More information on IIASA and Vietnam collaborations. This article gives the views of the authors, and not the position of the Nexus blog, nor of the International Institute for Applied Systems Analysis.

Facilitating sustainable energy transitions at the top of the world

By Pallav Purohit, researcher with the IIASA Air Quality and Greenhouse Gases Program

More than 300 million people in Hindu Kush Himalaya-countries still lack basic access to electricity. Pallav Purohit writes about recent research that looked into how the issue of energy poverty in the region can be addressed.

The Hindu Kush Himalayas is one of the largest mountain systems in the world, covering 4.2 million km2 across eight countries: Afghanistan, Bangladesh, Bhutan, China, India, Myanmar, Nepal, and Pakistan. The region is home to the world’s highest peaks, unique cultures, diverse flora and fauna, and a vast reserve of natural resources.

Ensuring access to affordable, reliable, sustainable, and modern energy for all – the UN’s Sustainable Development Goal (SDG) 7 – has however been especially elusive in this region, where energy poverty is shockingly high. About 80% of the population don’t have access to clean energy and depend on biomass – mostly fuelwood – for both cooking and heating. In fact, over 300 million people in Hindu Kush Himalaya-countries still lack basic access to electricity, while vast hydropower potentials remain largely untapped. Although a large percentage of these energy deprived populations live in rural mountain areas that fall far behind the national access rates, mountain-specific energy access data that reflects the realities of mountain energy poverty barely exists.

Source: Wester et al. (2019)

The big challenge in this regard is to simultaneously address the issues of energy poverty, energy security, and climate change while attaining multiple SDGs. The growing sectoral interdependencies in energy, climate, water, and food make it crucial for policymakers to understand cross-sectoral policy linkages and their effects at multiple scales. In our research, we critically examined the diverse aspects of the energy outlook of the Hindu Kush Himalayas, including demand-and-supply patterns; national policies, programmes, and institutions; emerging challenges and opportunities; and possible transformational pathways for sustainable energy.

Our recently published results show that the region can attain energy security by tapping into the full potential of hydropower and other renewables. Success, however, will critically depend on removing policy-, institutional-, financial-, and capacity barriers that now perpetuate energy poverty and vulnerability in mountain communities. Measures to enhance energy supply have had less than satisfactory results because of low prioritization and a failure to address the challenges of remoteness and fragility, while inadequate data and analyses are a major barrier to designing context specific interventions.

In the majority of Hindu Kush Himalaya-countries, existing national policy frameworks currently primarily focus on electrification for household lighting, with limited attention paid to energy for clean cooking and heating. A coherent mountain-specific policy framework therefore needs to be well integrated in national development strategies and translated into action. Quantitative targets and quality specifications of alternative energy options based on an explicit recognition of the full costs and benefits of each option, should be the basis for designing policies and prioritizing actions and investments. In this regard, a high-level, empowered, regional mechanism should be established to strengthen regional energy trade and cooperation, with a focus on prioritizing the use of locally available energy resources.

© Kriangkraiwut Boonlom | Dreamstime.com

Some countries in the region have scaled up off-grid initiatives that are globally recognized as successful. We however found that the special challenges faced by mountain communities – especially in terms of economies of scale, inaccessibility, fragility, marginality, access to infrastructure and resources, poverty levels, and capability gaps – thwart the large-scale replication of several best practice innovative business models and off-grid renewable energy solutions that are making inroads into some Hindu Kush Himalayan countries.

This further highlights an urgent need to establish supportive policy, legal, and institutional frameworks as well as innovations in mountain-specific technology and financing. In addition, enhanced multi-stakeholder capacity building at all levels will be needed for the upscaling of successful energy programs in off-grid mountain areas.

Finally, it is important to note that sustainable energy transition is a shared responsibility. To accelerate progress and make it meaningful, all key stakeholders must work together towards a sustainable energy transition. The world needs to engage with the Hindu Kush Himalayas to define an ambitious new energy vision: one that involves building an inclusive green society and economy, with mountain communities enjoying modern, affordable, reliable, and sustainable energy to improve their lives and the environment.

References:

[1] Dhakal S, Srivastava L, Sharma B, Palit D, Mainali B, Nepal R, Purohit P, Goswami A, et al. (2019). Meeting Future Energy Needs in the Hindu Kush Himalaya. In: The Hindu Kush Himalaya Assessment. pp. 167-207 Cham, Switzerland: Springer. ISBN 978-3-319-92287-4 [pure.iiasa.ac.at/15666]

[2] Wester P, Mishra A, Mukherji A, Shrestha AB (2019). The Hindu Kush Himalaya Assessment: Mountains, Climate Change, Sustainability and People. Cham, Switzerland: Springer. ISBN 978-3-319-92287-4.

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.

Less global inequality can improve climate outcomes

By Narasimha Rao, Project Leader of the Decent Living Energy (DLE) Project, IIASA Energy Program

Is there a conflict between reducing global income inequality and combating climate change? This seems like an odd question, given that these challenges have a lot in common. Raising the living standard of the poor for example, makes them resilient to climate impacts; less inequality can mean more political mobilization to establish climate policies; and changes in social norms away from material accumulation can reduce inequality and emissions. Academics have however been curious about the following phenomenon: In many countries, a dollar spent at higher income levels is less energy intensive than at lower income levels (known as “income elasticity of energy”). That is, rich people – although they consume much more in total – spend additional income on services or can afford energy-efficient goods, while the new middle class buy energy-intensive goods, like appliances and cars.

Many imagine China as a template for this type of fast growth. If globally significant, this effect would imply that growth that is more equitable would also be more emissions-intensive, and that we would have to pay particular attention to ensuring that climate policies reach the rising middle class in developing countries. While several studies have examined this phenomenon in specific countries, no one has examined its global significance. We set out to do that.

Energy intensity (MJ per $) lower in a high-growth, low inequality world (green line, Gini=0.29) compared to a low-growth, high inequality world (blue line, Gini=0.45). Gini reflects between-country inequality only.

Our analysis suggests that the energy-increasing effect of lowering inequality is more of a distraction than a concern. We compared scenarios of equitable and inequitable income growth, both within and between countries, assuming the most extreme manifestation of the income elasticity. Within any country, given the slow pace at which inequality typically evolves even with the most extreme known income elasticity and reduction in country inequality, greenhouse gas emissions would increase by less than 8% over a couple of decades. However, when one considers a more equitable distribution of growth between countries, global emissions growth may decrease when compared to growth that occurs in industrialized countries. This is because poorer countries have more potential for technological advancements that reduce the energy intensity of growth than richer countries do. That is, more income growth in poorer countries provides more opportunity for efficiency improvements that influence the emissions of very large populations. Furthermore, China is a poor model for poor countries at large, many of which have relatively low energy intensities, even today.

Climate stabilization at the level aspired to by the Paris Climate Agreement requires that we (i.e. the world) decarbonize to zero annual emissions around 2050, which means that even developing countries have to make aggressive strides towards integrating climate goals into development. Nevertheless, there is no sufficient basis for considering that equitable growth, and by implication the poor’s energy intensity, is part of the problem. To the contrary, the potential for co-benefits from equitable growth for climate change are enormous, but unfortunately under-explored, particularly in quantitative studies. Research should focus on quantifying the role of changing social norms – less consumerism, political mobilization, and other social changes that are typically associated with lower inequality – on reducing greenhouse gases. ­

Reference:

Rao, ND, Min J. Less global inequality can improve climate outcomes. Wiley Interdisciplinary Reviews: Climate Change. 2018;e513. https://doi.org/10.1002/wcc.513

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.

Disappearing Act: Bolivia’s second largest lake dries up

By Parul Tewari, IIASA Science Communication Fellow 2017

In 2016, Bolivia saw its worst drought in nearly 30 years. While the city of La Paz faced an acute water shortage with no piped water in some parts, the agricultural sector was hit the hardest. According to The Agricultural Chamber of the East, the region suffered a loss of almost 50% of total produce. Animal carcasses lay scattered in plain sight in the valleys, where they had died looking for watering holes.

Lake Poopo (Bolivia) before it dried up © David Almeida I Flickr

One of the most dramatic results of this catastrophic drought was that Lake Poopo, (pronounced po-po) Bolivia’s second largest lake was drained of every drop of water. Located at a height of approximately 1127 meters, and covering an area of 1,000 square kilometers, what remains of it now resembles a desert more than a lake. This event forced the fishing community of Uru Uru, which depended on the lake, to either migrate to other lakes or look for alternate livelihood options.

Lake Poopo is located in the central South American Altiplano, one of the largest high plateaus in the world (Bolivia’s largest lake, Titicaca, is located in the north of the region). Due to its unique topography, the highland faces extreme climatic conditions, which are responsible for difficult lives as well as widespread poverty among the people who live there.

While Titicaca is over 100 meters deep, Poopo had a depth of less than three meters. Combined with a high rate of evapotranspiration, erratic rainfall, and limited flow of water from the Desaguadero River, Poopo was in a precarious position even during the best of times. Whatever little water flowed in from the river is further depleted by intensive irrigation activities at the south of Lake Titicaca before the water makes it way down to Poopo.

Sattelite images of Lake Poopo

Changes in water levels of Lake Poopo over 30 years © U.S. Geological Survey, Associated Press

The lake’s existence had been threatened several times in the past. However, the 2016 drought was one of the most devastating ones. According to the Defense Ministry of Bolivia, early this year the lake started recovering after several days of heavy rain, restoring as much as 70% of the water. However, since the lake is a part of a very fragile ecosystem, there have been some irreversible changes to the flora and fauna in addition to the losses to the fishing communities living around the lake.

Charting a better future

Claudia Canedo, a participant of the 2017 Young Scientists Summer Program (YSSP) at IIASA, is exploring the impact of droughts and the risk on agricultural production in the light of this event, after which Bolivia declared a state of water emergency. Canedo was born and raised in the city of La Paz and experienced water shortages while growing up close to the Altiplano. This motivated her to investigate a sustainable solution for water availability in the region. With the results of her study she is hoping to ensure that such a situation doesn’t arise again in the Altiplano – that other communities directly dependent on ecosystem services, like that of Lake Poopo, do not have to lose everything because of an extreme weather event.

For a region where more than half the population is dependent on agriculture for their livelihoods, droughts serve as a major setback to the national economy. “It is not just one factor that led to the drought, though. There were different factors that contributed to the drying up of the lake and also contribute to the agricultural distress,” she says.

“The southern Altiplano lies in an arid zone and receives low precipitation due to its proximity to the Atacama Desert. Poor soil quality (high saline content and lack of nutrients) makes it unsuitable for most crops, except quinoa and potato in some areas,” adds Canedo. Residents also lack the knowledge and the monetary resources to invest in newer technology, which could possibly lead to better water management.

A woman from one of the drought affected communities in Bolivia © EU – Photo credits: EC/ECHO/Laurence Bardon I Flickr

One of the most critical factors in the recent drought was the El Nino- Southern Oscillation, the warming of the sea temperatures in the Pacific Ocean, which in turn carries the warmer oceanic winds and lowers the rate of precipitation in the highland leading to increased evapotranspiration. In 2015 and 2016, the losses due to this phenomenon were devastating for agriculture in the Altiplano, says Canedo.

In her quest to find solutions, the biggest challenge is the lack of recorded data from local weather stations for the past years. Although satellite data is available, it is too generic in nature to do a local analysis. Therefore combining ground and satellite data could enhance the present knowledge and provide consistent results of the climate and vegetation variability. If done successfully, Canedo hopes to identify a correlation between precipitation and vegetation. With this information, she can improve climate forecasting that could help the local people adapt to droughts powerful enough to turn their lives upside down.

With weather forecasts and early warning systems for extreme weather events like droughts, farmers would know what to expect and would be able to plant resilient varieties of crops. This might not earn them the same profits as in a normal year, but would not result in a failed crop. Claudia aims to come up with a drought index useful for drought monitoring and early warning, which will integrate short-term and long-term meteorological predictions.

Perhaps, in the future, with this newfound knowledge, the price for extreme weather events won’t be paid in terms of lost ecosystems like that of Lake Poopo, robbing people of their lives and livelihoods.

About the Researcher

Claudia Canedo is a participant in the 2017 IIASA YSSP. She is pursuing a doctoral program in water resources engineering at Lund University, Sweden. She is interested in studying the hydrological and climatological conditions over small basins in the South American highlands. The aim of her research is to define water resources availability and find strategies for sustainable water management in the semi-arid region.

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.