ck2017: governance for efficient buildings in indian cities
TRANSCRIPT
Governance for Efficient Buildings
in Indian Cities
Radhika Khosla, Centre for Policy Research
WRI Connect Karo
April 2017
Outline
• Context• Locating buildings within cities and the energy-climate context
• Mapping building energy policy and governance
• Examining building energy outcomes
• Looking ahead
Cities as sites of energy consumption• Structural transitions in India’s cities
• 200 million moving to urban centres in next 20 years • Investment of $1 trillion in infrastructure over the 12th Plan period
• By 2050, floor area in India will escalate by 400% • “Growth engines”: 75% of GDP from cities in next 15 years
• Resulting new interconnected relationships• Population, development, socio-environmental, climate change impacts
• Challenges require different tools• Restructuring economies, ways of life, new technologies, institutional arrangements
Locating buildings within city planning• Buildings >30% of economy’s electricity use
• Increasing access to housing and electricity• 2/3rds of commercial + high-rise residential buildings in 2030 yet to be built (2010)
• Buildings significant contributor to India’s carbon emissions• Paris Agreement opens new spaces for mitigation action in national energy contexts
• Urbanization process preshapes available action space to prevent lock-in• Path dependencies from long lifetime of buildings of ~50 years
• Lock-in risk of final energy use in buildings (for space heating and cooling) in India is 414% by 2050 (US — 53%; China — 63%)
• How will India respond to the development, energy and
Timeline of building energy programs
Source: Khosla et al. (2017)
Energy outcomes over ten years
• Weak energy performance metrics in spite of multiple activities• Energy Performance Index ~200-400 kWh/sqm/yr (efficient building ~100 kWh/sqm/yr)
• 7 of 35 Indian states/UTs notified the building code after almost a decade
• Most states in process of code notification, yet to see wide implementation
• Small segment of private developers adopt efficiency technologies
• Most activities flow top-down (international →national → subnational) • States seldom “laboratories of experimentation” or
Why weak energy outcomes?
1. Lack of harmonization and accountability in institutional structure
Town Development Offices Town planning offices include provisions
into local bye laws
Ministry of Power: Bureau of Energy Efficiency Develops ECBC
Ministry of Urban Development Responsible for the building guidelines and approval
processes
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Energy Department Provides technical support for ECBC implementation
Public Works Department
Urban Development Department Develops state development control regulations
Electrical Inspectorate Department KREDL (SDA) Administers ECBC
Architecture Division
(KT ECBC Cell)
Engineering Division
City Corporation
Urban local Bodies (Municipality) Updates municipal building byelaws to be
complaint with ECBC
• Policy push from BEE level
• Overlapping responsibilities + poor coordination between levels• Notification: coordination between national (MoP)-state (UDD) but UDD usually coordinates w/MoUD
• Post notification, sub-state
Illustrative ECBC governance map for Karnataka
2. Constraints of capacity• Capacity often emphasized, but current capabilities do not mirror requirements for transformation of a major sector
• BEE master trainers often not offered opportunities to use acquired skills
• State and local bodies require numbers and training for implementation and monitoring• 80% of SDAs share MNRE and MOP objectives, political economy of the SDA results in little interest in EE
• Often the number of officials within the SDA to handle ECBC issues is less than 5 persons/state
Why weak energy outcomes?
3. Interacting energy and climate change agendas across multiple levels of governance• Disconnected agendas
• at international level, discussions are climate driven
• at national level, concern is development, energy security, with some climate attention
• for the states, motivation is managing energy supplies and peak load
• the local level is largely insulated from energy or climate debates
• E.g. of is the absence of buildings in most states’ climate plans
Why weak energy outcomes?
Changing the status quo• Policy programs can assume that technologies/codes along bring change
• Re-think buildings efficiency from a technical problem to a socio-technical problem:Technology and market access
Users and behaviour• Individuals/households• Organizations
Policies and governance• Role of state departments• Role of municipalities and
urban local bodies
Building energy efficiency
Looking Ahead
• Differentiated approach to capacity building• Understand state-specific local needs and communicate between states
• Organizational capacity to oversee local implementation• For code implementation, progress driven by individual leadership, not compliance structures
• Strengthen linkages and agendas across national and local levels • How can the Energy and Urban Development Departments work more closely together?
• Better links between state and local levels for outcomes on the ground
• Better linkages within states -- network of state energy officials or of ECBC cells?
