SECTOR ASSESSMENT: BIHAR POWER SECTOR
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1 P P Central Bihar Power System Improvement Project (RRP IND 41626) SECTOR ASSESSMENT: BIHAR POWER SECTOR A. Introduction 1 1. The power sector in India has an installed capacity of 159,400 megawatt (MW),PF FP and faces a peak deficit of 13.3% and an energy deficit of 10.1%. The key priorities of the Government of India laid out in the National Electricity Policy are to increase per capita availability of electricity to over 1,000 kilowatt-hours (kwh) by 2012, with minimum lifeline consumption of 1 kwh per household per day. India also intends to make greater use of indigenous hydropower and renewable energy resources, particularly solar and wind energy, in the coming years. It has recognized that the past poor performance of state electricity boards put significant strain on public finances and over the last seven years has initiated programs to reform and restructure electricity boards, establish open access, and rationalize tariffs. Independent regulatory bodies were established nationally and in each state. 2. Institutional arrangement. The central government s Ministry of Power provides overall guidance to the sector through the Central Electricity Authority. The ministry owns central power utilities such as the National Thermal Power Corporation, National Hydroelectric Power Corporation, Nuclear Power Corporation, and the Power Grid Corporation of India, which are engaged in generation and interstate power transmission. The Rural Electrification Corporation and the Power Finance Corporation are government-owned institutions dedicated to financing power sector activities. A Power Trading Corporation has recently been established. In all technical and economic matters, the ministry is assisted by the Central Electricity Authority, which is responsible for the technical coordination and supervision of programs, and is also entrusted with a number of statutory functions. The Central Electricity Authority is responsible for preparing a national electricity plan in accordance with the National Electricity Policy and to modify the plan every 5 years. In Bihar, the Department of Energy of the Government of Bihar formulates and implements sector policies. Agencies such as the Bihar State Electricity Board (BSEB), the Bihar State Hydroelectric Power Corporation, and the Bihar Renewable Energy Development Association carry out various functions as indicated in the sections below. 3. Legal framework. The Electricity Act, 2003 is the cornerstone legislation for the power sector in India, and provides the legal framework for its efficient development. The act primarily concerns itself with unbundling of state electricity boards, open access, and competition. Salient provisions of the Electricity Act, 2003 are (i) exemption from licensing requirements for electricity generation; (ii) open access in electricity transmission; (iii) licensing for electricity trading; (iv) arrangement of licenses for laying private transmission lines; (v) promotion of competition by allowing the presence of more than one distribution company in one area of supply; (vi) ensuring electricity supply to the consumers on minimum standards; and (vii) provision for establishment of tribunals in place of the High Court for appeal against the orders of the Central Electricity Regulatory Commission. B. Sector Performance, Problems, and Opportunities 4. BSEB is a vertically integrated monopoly utility responsible for thermal electricity generation, transmission and distribution in the state of Bihar. After the state was divided in 2000 into two successor states (Bihar and Jharkhand), the utility was bifurcated into two separate boards on 1 April 2001, one for each successor state. The bifurcation resulted in major power stations being transferred to Jharkhand, leaving Bihar with two old thermal generating 1 Electricity Authority Planning Wing Report. New Delhi.
2 2 stations and the need to purchase 90% of its power from central utilities. It also lost remunerative industrial customers to Jharkhand. At the end of 2009, BSEB had 2.96 million consumers and overall sales were at 5,325 gigawatt-hours (GWh), of which 33% were to domestic consumers, 27% to industrial consumers, and 15% to irrigation consumers. Sales growth was 10% from a year earlier. The operational and financial performance of BSEB in Table 1 indicates that the state power sector is fraught with high transmission and distribution losses and poor cost recovery. Some key problems and opportunities in the power sector are outlined in the sections below. Table 1: Performance of the Bihar State Electricity Board item Generation and purchases (GWh) 6,555 7,595 8,207 8,246 8,895 Sales (GWh) 4,102 4,342 4,542 4,852 5,325 Losses (%) Average revenue (Rs/kWh) Sale of power (Rs billion) Total income (including subsidies) (Rs billion) Cost coverage (tariff/cost) (%) GWh = gigawatt-hour, Rs = Indian rupees Source: BSEB accounts figures are to be audited. 5. Lack of addition to generation capacity. Bihar s current installed generation capacity is only MW, including renewable resources owned by the Bihar State Hydroelectric Power Corporation. The state has access to a total of 1,846 MW, including capacity allocated from central stations. Bihar s peak demand in FY2009 was 2,249 MW, resulting in a critical peak deficit of nearly 33% and an energy deficit of 15.5%. This has led to severe rationing of power to meet consumer requirements. While some of the deficit can be attributed to legacy issues arising from the creation of Jharkhand, there has been no major addition to generation capacity. BSEB s thermal generating stations at Barauni and Muzaffarpur have undergone major renovation and modernization. Rapid augmentation of generation capacity is a prime priority for the Government of Bihar, which intends to set up joint ventures (3 X 660 MW at Nabinagar), expand existing plants, catalyze independent power producer projects (Banka, Pirpainty, Kahalagaon), and seek allocations from central sector plants to ensure that the state will not have to endure the 66% peak deficit forecast by the Central Electricity Authority for Transmission improvements. The transmission network in Bihar is not satisfactory and needs considerable investment to ensure more reliability and quality of power supply. A new program to support the creation of a reliable transmission system was conceived under the Rashtriya Sam Vikas Yojana scheme, providing for expansion of the grid to meet the impact of electrification and growth in demand. The Bihar subtransmission scheme resulted in 18 new grid substations and construction of 876 kilometers (km) of associated transmission lines under phase 1. Under phase 2, a similar program is being undertaken to build 10 new grid substations, upgrade 27 existing substations, and add 523 km of transmission lines. The Power Grid Corporation of India is supporting the implementation of this scheme. The transmission component included in the Asian Development Bank (ADB)-funded Bihar Power System Improvement Project, consisting of new transmission substation capacity, renovation and modernization of existing substation capacity, and the addition of 328 km of new or upgraded transmission lines, fits into the state s transmission upgrade program by filling gaps not covered by other investments.
3 P P P Planning P Government FP Apart FP 3 7. Distribution losses. Current power distribution in Bihar is characterized by over 40% of system losses, far higher than the national target of 15%. The losses including cash realization are even higher. Such a situation calls for a change in the way electricity distribution is managed. Under the previous Accelerated Power Development and Reforms Program (APDRP) of the central government, schemes taken up included (i) establishment of new distribution substations, (ii) installation of consumer and feeder metering, (iii) upgrading of overloaded 33 kilovolt (kv) and 11 kv lines, (iv) renovation and modernization of existing substations and distribution transformers, and (v) installation of new distribution transformers. The implementation of the revised APDRP will result in baseline studies and subsequently target improvements over a 3-year time frame. The phase 1 studies for the revised APDRP are being tendered out for over 70 towns and cities in Bihar. The distribution components included in the ADB-funded Bihar Power System Improvement Project have been designed to fit into this overall revised APDRP distribution investment program, and cover seven towns within four distribution circles in the state. Also, innovative distribution franchise schemes (para. 11) aim to reduce the commercial losses in the state. 8. Financial performance. While improving, BSEB cost recovery through tariffs is still low at 47%, with an average cost of electricity of Rs6.55 per kwh and an average tariff of Rs3.14 per kwh. Tariffs have not kept pace with cost increases. For example, employee costs have risen 82% from 2004 to 2009, largely on account of higher retirement benefits. Interest and finance charges have increased by 68% as a result of higher interest on working capital and state government loans. BSEB s balance sheet has negative reserves and surpluses. Despite this, there have been some improvements over the last five years, since the state government is providing funding for the payment of power purchase costs and for paying revenue subsidies to BSEB. 9. Limited access to power. Bihar s power consumption is among the lowest in India at a 2 little over 100 units per capita compared with a national average of 717 units per capita in 2008.PF Village electrification has become a priority with the implementation of the Rajiv Gandhi Grameen Vidyutikaran Yojana scheme in Under the scheme, 20,526 villages were either electrified, or 3 if already electrified, benefited from upgrading, out of a the target of 29,862 villages.pf from BSEB, several central sector agencies (Power Grid Corporation of India and National Hydroelectric Power Corporation) play a pivotal role in getting rural areas connected to power supply. In Bihar, a large beneficiary under the scheme, there will be substantial additional demand on the system as new villages and households are given access to electricity. 10. State road map and policy. Bihar has decided in principle to restructure its power sector and set up new entities to manage different functions of generation, transmission, and distribution. However, there is some debate on the number of distribution companies to be formed. The central government and the Government of Bihar are engaged in a dialogue regarding the state road map for power sector reforms. Other aspects such as government support to implement anti-theft measures, payment to BSEB of past due electricity bills of government departments, timely disbursement of subsidies to BSEB, timely acquisition of land for projects are all essential to improving the power sector. 11. Private sector participation. The state of Bihar has initiated an urban franchise model to take over operation and maintenance as well as billing and collection for a period of 10 years 2 3 & Development Department, Government of Bihar Power Sector in Bihar. Patna. ( of India, Ministry of Power. Rajiv Gandhi Grameen Vidyutikaran Yojana.
4 4 in four cities of Bihar. Agencies have been chosen for two of the electricity franchise areas, including the capital city of Patna. In 2006, Bihar has also initiated a successful model of rural franchising, handing over more than kV feeders to small entrepreneurs. Generally, collections have improved in these feeders; in some instances, they increased from 35% to over 65%. There is a proposal to convert some of these from collection-based franchise models to input-based franchise models, where the franchisee would also be responsible for reducing distribution losses. 12. Institutional capacity. Bihar s power sector operates under considerable institutional constraints. For example, the state has limited capacity to plan for future generation and transmission projects. A study was conducted to devise a long-term master plan for Bihar, including providing system planning software and training to BSEB. Additional enhancement of institutional capacity is planned as an integral part of the Power System Improvement Project. A second study was undertaken to identify action plans for loss reduction and distribution improvements, including the requirement to measure and categorize losses and to meter power sales. Another area in need of additional staff and training is financial management and accounting, where variances were noted between the average rate of sales and the notified tariff, and weaknesses in the way field offices record and transmit data. The need for management information systems across the BSEB is acute. 13. Role of the regulator. The Bihar Electricity Regulatory Commission was set up in May Tariffs were raised about 10%, the first increase since The regulator has issued 33 directives, including directives on metering, loss reduction, and loss reduction trajectories that BSEB is working to comply with. The regulator would also need to review the utility s resources and performance framework to bring down losses in line with the 3% annual loss-reduction target. In addition, there need to be independent studies to establish baseline loss levels and monitoring of targets. ADB is currently providing capacity development and staff training to the regulator. 14. Renewable sources. The Bihar State Hydroelectric Power Corporation is mandated to develop and operate hydroelectric power capacity in Bihar, including micro-hydro projects on canal systems. The Bihar Renewable Energy Development Association is the main agency to promote renewable sources of energy and is currently undertaking studies to assess wind power potential. There also is potential for biomass projects in the state. C. ADB Sector Experience and Assistance Program 15. ADB is a multilateral development partner in the power sector in India, and has supported states such as Assam, Gujarat, Himachal Pradesh, Madhya Pradesh and Uttarakhand on power sector investments. ADB has supported project loans for generation, transmission, and distribution projects. It also has worked with state governments and utilities on various reform measures, including unbundling and corporatization of the state electricity boards, and supporting regulatory institutions and performance improvement projects in electricity utilities. The Ministry of Power has expressed its interest in ADB involvement in lagging states such as Bihar, where investment funding combined with capacity building activities can, over time, assist these states in catching up with states that are further along on their sector development plans.
5 [Core Problem] [Causes] Inadequate Physical Infrastructure PHYSICAL BIHAR POWER SECTOR - PROBLEM TREE Generation not adequate to match demand in Bihar Limited transmission Infrastructure Inadequate and inefficient distribution infrastructure [Sub-Causes] No significant addition to state power generation capacity Existing plants not being operated at optimal levels Inadequate Network infrastructure to transmit High level of distribution losses (50.67% in FY 2006) Rural electrification levels are low [Project Specific Sub-Causes] - Addition from Central sector plants - Case 1, Case 2 procurement planned to meet demand - Ongoing Renovation and modernization program with central government support - Support from central government subtransmission schemes and ADB - R-APDRP Initiative of Central Govt. - Other initiatives including support for IT, metering, HVDS, reconductoring - RGGVY initiative Constrained GDP Growth Human Suffering Widespread Poverty LEGEND: Problem Deteriorating power sector situation in Bihar - Intervention NON-PHYSICAL Limited governance framework Inadequate institutional capacity within power sector Deteriorating financial situation of Bihar SEB Organizational Issues Insufficient monitoring of the implementation of policy, regulatory di ti Creating a conducive environment for investment and private sector ti i ti Legacy Issues arising from the state reorganization Increasing level of losses (Average tariff does not cover average cost) Absence of state roadmap to revive the power sector - Financial restructuring and clean balance sheets - Tariff reform - Loss Reduction including R-APDRP, - Manpower assessment Insufficient number of well trained staff in - Contractual BSEB employment Limited planning capacity Limited project implementation capability Limited operating capacity Limited accounting and financial management expertise - To be finalized with Central Government during loan processing - System Planning undertaken for Bihar - Capacity Development through ADB TA and other central government programs Problems and Interventions on the right are those being addressed through this Loan ADB = Asian Development Bank; BSEB = Bihar State Electricity Board; FY = fiscal year; HVDS = high voltage distribution system; IT = i=information technology; R-APDRP = revised accelerated power development and reforms program; RGGVY = Rajiv Gandhi Grameen Vidyutikaran Yojana; TA = technical assistance. Source: Asian Development Bank estimates. 5
6 P 6 Outcomes with ADB Contributions Provide electricity connection to all villages and below-poverty-level households, and round-theclock power by the end of the 11th Five Year Plan. Increase generation capacity. Strengthen and expand national transmission system Reduce AT&C losses. Reduce primary energy demand. Increase energy efficiency Promote low-carbon energy sources. Increase private sector participation. Indicators with Targets and Baselines 115,000 villages electrified and connections to 23.4 million households below the poverty line. Sector Results Framework (Energy Sector, ) Country Sector Outcome Country Sector Outputs ADB Sector Operations Indicators with Outputs with ADB Incremental Targets Planned and Ongoing Contributions (Baselines Zero) ADB Interventions Increase capacity by 78,577 MW during the 11th Plan. Add inter-regional capacities of 20,700 MW at 200 kv and above during 11th plan. Enable system to handle 100,000 MW peak load. From 40% to 15% by th the end of the 11P plan. 5-7% demand reduction 20% increase by (i) Promotion of higher efficiency, low-carbon energy sources. (ii) Expansion and optimization of transmission and distribution systems. (iii) Institutional strengthening to implement reforms required by the Electricity Act, 2003, including development of more flexible power delivery and trading systems. (iv) Lowering AT&C losses. (v) Promotion of private sector participation. (vi) Rural electrification. 16,553 MW of hydropower capacity additions Increase of interregional transmission capacity by at least 6,000MW. Maintain interstates transmission system availability at not less than 99.0% Reduce transmission losses by 3 4%. (i) Planned Key Activity Areas: Clean Energy Development Transmission & Distribution System Investments (ii) Projects in the Pipeline Bihar Power System Improvement Project Himachal Pradesh Clean Energy Transmission Program (MFF) ($300 million) (iii) Ongoing Projects Power Grid Transmission Uttarakhand Power Sector Development (MFF) Madhya Pradesh Power Sector Development Project Himachal Pradesh Clean Energy Development Investment Program (MFF) ($800 million) Assam Energy Efficiency Enhancement Project Main Outputs Expected from ADB Contributions Increased run-of-river hydropower and solar power capacity additions Continued support for capacity development and sector reforms at the state level. T&D substation capacity enhancement and renovation of lines. Augmentation of distribution transformer capacity and systemstrengthening activities in seven towns in Bihar. ADB = Asian Development Bank; AT&C = aggregate technical and commercial; kv = kilovolt; MFF = multitranche financing facility; MW = mega-watt; T&D = transmission and distribution. Source: Asian Development Bank estimates.
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