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Review Article
Hydro Energy Sector in India: The Past, Present and Future Challenges
M GOPALAKRISHNAN*
President, New Delhi Centre of World Water Council; and Former President of Indian Water Resources
Society; Presently: Independent Senior Water Resources & Hydropower Expert, Bangalore 560 064,
India
(Received on 06 May 2014; Accepted on 08 August 2015)
During the last century, hydropower has made an important and significant contribution to meeting the energy needs of
countries. In developed countries, most hydropower potential has been harnessed. However, the situation is not similar in
developing countries such as India. It is seen that nearly 3/4 of exploitable hydro energy potential in India is yet to be
harnessed for the betterment of growth and welfare of population of the region and boost industrial growth. The estimated
economically exploitable hydro potential in India is assessed at 84,000 MW (@ 60% load factor) with a suggested installed
capacity of 1,48,700 MW. About 26% of this has been exploited with the existing hydro power plants.
The study is an effort to bring out vividly the past, present and future of hydro energy in India; some relevant aspects of
the global situation are also discussed. Relevant policies of the central government have been touched upon as required
while discussing the bottlenecks encountered in accelerating hydropower sector development.
India has the capacity to play a lead role in energy security if it were able to harness all the exploitable hydro energy in the
region, including Himalayas in collaboration with its neighbouring countries.
With the completion a few world class hydro projects of challenging nature such as the Tehri Dam and power plants,
Naptha Jhakri Hydro Project, etc. in recent decades, the engineering community in India is well-poised to focus on the
development of hydro energy in challenging sites, mostly in the Himalayas, and accomplish the realization of the balance
available energy potential that is sizeable.
Keywords: Hydropower; Historic Scenario in Hydro Development; Water Resources Sector and Hydropower
Generation; Government Policies in Energy and Water Sectors; Resettlement Issues; Indian Strength
in Hydro Engineering
*Author for Correspondence: E-mail: mgopalakrishnan@hotmail.com, mgopalakrishnan_in@yahoo.com
Proc Indian Natn Sci Acad 81 No. 4 September 2015 pp. 953-967
Printed in India.DOI: 10.16943/ptinsa/2015/v81i4/48305
Historical Glimpse of Hydropower – The Global
Scenario
The world’s first electrical power generation on a
commercial scale is just 130 years old. The first
hydropower station was constructed in England in
1881 by utilizing the water potential of river Wey at
Godalming Surrey, and put into operation to supply
electricity. The world’s first electrical power
generation for a specific customer however was
started in 1879 in Switzerland when a hydropower
generating set was installed for supply of electrical
power to a hotel in St. Moritz for its lighting. The old
Schoelkopf Power Station No.1 near Niagara Falls in
the U.S. side began to produce electricity in 1881.
The first Edison hydroelectric power plant – the
Vulcan Street Plant – began operating in September
1882, in Appleton, Wisconsin, with an output of about
12.5 kilowatts. Switzerland’s first power station on
commercial scale started in 1882 at Laussane. Soon
other countries of Europe such as Italy in 1884 and
Germany in 1891, also commissioned power
Published Online on 13 October 2015
954 M Gopalakrishnan
generating stations using water potential. In USA, the
first hydropower station was commissioned at Niagara
Falls in 1885, having two units of 5500 kW each.
The earlier uses of waterpower could be traced
back to Mesopotamia and ancient Egypt, besides
peninsular India and Sri Lanka. Through different
means of energy conversions, irrigation stood as a
practice since the 6th millennium BC. The water
clocks had been used since the early 2nd millennium
BC. Other notable earlier examples of ‘‘water power’’
include the Qanat system in ancient Persia and the
Turpan water system in ancient China. Hydropower
had also been in common use since the ancient times
for grinding the flour and to perform other similar
tasks. However, most of the direct uses or conversion
of water power especially from flowing streams using
water wheels were mostly of crude nature with little
regard to efficiency, output, etc. From the early 19th
century, the water wheel designs were being refined
and engineered on the basis of principles of fluid
mechanics by the French and Americans. In course
of time, various types of hydraulic turbines were
invented such as Fourneyron, Francis, Kaplan and
Pelton. The use of these turbines, located at or close
to the water sites, considerably improved efficiency
of direct water power use in domestic industries of
the day and also proved very handy and was a boon
when the possibility of electricity generation from
hydropower became feasible for the first time in the
world in 1879. It was in the late 19th century, when
the electrical generator was developed and coupled
with hydraulic turbines.
By 1886, there were about 45 hydroelectric
power plants in the USA and Canada. By 1889, there
were 200 plants in USA. At the beginning of the 20th
century, a large number of small hydroelectric power
plants were constructed by commercial companies in
the mountains that surrounded metropolitan areas. By
1920, 40% of the power produced in USA was
hydroelectric. Hydroelectric power plants continued
to become larger throughout the 20th century. After
Hoover Dam’s initial 1345 MW power plant became
the world’s largest hydroelectric power plant in 1936,
it was soon eclipsed by the 6809 MW Grand Coulee
Dam in 1942. Brazil’s and Paraguay’s Itaipu Dam
opened in 1984 as the largest, producing 14,000 MW
but was surpassed in 2008 by the Three Gorges Dam
in China with a production capacity of 22,500 MW.
India did not lag much behind: the
commencement of the maiden hydropower generation
plant in India began in 1897 with an electricity
generating station of 130 kW capacity, named
Sidrapong. Using the potential of Teesta river at the
site, this facility was constructed and put into service
by the Municipality of hill station of Darjeeling in (the
present day) State of West Bengal.
Hydropower plants all over the world produce
about 24% of the world’s electricity and supply more
than 1 billion people with power. According to National
Renewable Energy Laboratory, the combined output
of the world’s hydropower plants is about 675,000
MW, the energy equivalent of 3.6 billion barrels of
oil. More than 150 countries around the world generate
hydropower now. About 44% of the world’s
hydropower was generated in four countries in 2002,
mostly large- and mid-scale plants. Asia accounted
for 24% of the world’s hydropower generation, with
618 GWh, followed by North America with 23% (595
GWh) and Europe with 20% (537 GWh). Currently,
808,000 megawatts of hydropower generation
capacity are in operation or under construction around
the world.
Central and South America generate nearly 70%
of their electricity from hydropower, and many
countries, including several large countries such as
Canada and Brazil, rely on hydropower for more than
half of their electricity. Brazil, Canada, Norway,
Paraguay, Switzerland, and Venezuela are the only
countries in the world where majority of the internal
electric energy production is from hydroelectric power.
Paraguay produces 100% of its electricity from
hydroelectric dams, and exports 90% of its production
to Brazil and Argentina. Hydropower makes up 85%
of Brazil’s electricity generation with 69 GW of
installed capacity. The capacity under construction
or planning is more than 25 GW. One of the
hydropower plants under construction is the giant 11.18
GW Belo Monte power plant. Hydropower accounts
for 57% of the electricity generated in Canada, 7% in
USA (USA uses hydropower for peaking and not as
Hydro Energy Sector in India: The Past, Present and Future Challenges 955
base load) and 12% in Mexico. Canada’s economical
hydropower potential is second only to that of Brazil
in the Western Hemisphere. Canada still has several
projects either under construction or planning,
amounting to 6.6 GW. In Western Europe and USA,
the scope for additional hydropower is limited, as most
economic sites have already been developed.
An incredible 99% of all electricity in Norway
is produced from hydropower with an average annual
production capacity of about 125 TWh (2005). This
is achieved through 620 power plants spread along
the whole country and utilization of approximately 60%
of Norway’s accessible hydropower potential.
Norway is the world’s sixth largest producer of
hydropower and the largest producer in Europe. While
the developed countries have harnessed their
respective hydro potential, other countries such as
Brazil, China and India embarked upon development
of their hydropower a little later. Brazil and China
had done it in a big way. India is progressing to develop
its hydropower potential but due to wide ranging issues
such as resettlement of affected people and other
environmental concerns is lagging behind some of
these developing nations. Smaller countries such as
Nepal and Bhutan having huge untapped hydropower
potential are also pursuing ambitious plans for
development of hydropower. In particular, the
importance of hydropower is well-recognized in
Bhutan and seeing the immense contribution of
hydropower projects developed in the last few
decades with Indian co-operation such as Chukha,
Tala, etc. to their economy, envisaged in 2011, a
target of adding yet another 10,000 MW hydropower
in Bhutan by 2020. Many of these would be joint
venture operations with several leading Indian public
sector power utilities.
China obtained about 17% of its electricity from
hydropower during 1990 to 2006. Chinese hydropower
generation grew at a compounded annual growth rate
of 8% (compared to 1.5% for the rest of the world),
thus increase in Chinese hydropower generation over
this period accounting for 36% of the global increase
in hydropower generation.
Historical Glimpse of the Indian Hydropower
Scenario1
India is fortunate to be endowed with all the primary
energy sources such as coal, hydropower, uranium/
thorium, etc. However, among these, hydropower is
the only renewable source of energy and has been
recognized as economical and a preferred source of
electricity due to its various benefits. Development
of hydropower resources is important for energy
security of the country. Hydropower is a renewable,
economic and non-polluting source of energy.
Hydropower stations have inherent ability of quick
starting, stopping and load variations offering
operational flexibility and help in improving reliability
of power system. Hydro stations are the best choice
for meeting the peak demand. The generation cost is
not only inflation-free but reduces with time.
Hydroelectric projects have long useful life extending
over 50 years and help in conserving scarce fossil
fuels. They also help in opening of avenues for
development in remote and backward areas.
Although hydropower was generated at
Darjeeling in 1897, the first major landmark
hydropower station, designed to promote industrial
development, was set up at Sivasamudrum on the
river Cauvery with an initial capacity of 7.92 MW in
1902 and in due course of time, this was increased in
stages. The final installed capacity of this powerhouse
became 47 MW by 1938. Initially, power was supplied
to Kolar Gold Fields for mining development and
operations and later to Bangalore and Mysore cities
too. Mysore Darbar’s second development was in
1940: the Shimsapura hydro power station (2 × 8.6
MW), also on the river Cauvery.
In the north, in 1905, a 4 MW Mohora hydro
station on river Jhelum was the first major hydropower
development in the then princely state of Jammu and
Kashmir. The maximum contribution to hydro
development was made later in the west by the
renowned private industrial house of the Tata’s who
set up three major hydro stations in the Western Ghats
in the then Bombay Presidency, namely 40 MW
Khopoli (5×8 MW) in 1915, 48 MW Bhivpuri (4×12
1Please see reference 1
956 M Gopalakrishnan
MW) during 1922-25 and 90 MW Bhira (5×18 MW)
in 1927.
In 1932, two major hydro development projects,
namely 48 MW Jogindernagar (Uhl) hydro station
(now in Himachal Pradesh), and 14 MW (initial
capacity) Pykara hydro station were taken up and
completed by the then provincial governments of
Punjab and Madras, respectively. Further notable
developments in the then Madras Presidency were
Mettur dam hydro station (40 MW) in 1937 and
Papanasam (14 MW initial) in 1944. The then
Travancore-Cochin princely state (now in Kerala) and
the State of United Provinces (now Uttarakhand and
Uttar Pradesh) also carried out some significant hydro
developments namely the Pallivassal hydro station
(with 15 MW initial capacity), and a series of hydro
stations on Ganga canal, respectively. A total installed
hydro capacity at the time of independence increased
to 508 MW in a span of about 50 years since the first
development project that surfaced in the British period.
A few notable major projects were undertaken
since independence that made significant strides in
the subsequent few decades after the 1950s. Prime
Minister Pandit Nehru was quite proud to proclaim
some of the impressive dams and hydro as ‘‘the
modern temples of India’’. Inter-alia, one can view a
few from among a larger list2 viz:
Bhakra Dam multipurpose project complex
comprising Bhakra Dam and dam toe
powerhouse – 450 MW, and two canal
powerhouses – total 154 MW, in the then larger
Punjab state (later divided into smaller states,
Punjab, Haryana and Himachal Pradesh)
Rihand Dam multipurpose project – 300 MW in
the then United Province, now Uttar Pradesh
Gandhi Sagar multipurpose project in the then
Madhya Bharat, now Madhya Pradesh
Koyna Dam multipurpose complex project (with
first major underground powerhouse) – 540 MW
in the then larger Bombay state, now
Maharashtra
Sharavati project – 891 MW in the then Mysore
State, now Karnataka
Periyar project – 140 MW
Kundah complex project PHs I-60 MW and II-
175 MW in the then larger Madras state, now
Tamil Nadu
Machkund – 120 MW, and the famous Hirakud
dam multipurpose projects 308 MW in Orissa.
A host of other smaller capacity projects ranging
from the minimum of a few MW to 50-60 MW were
also undertaken in J&K, UP (now in Uttarakhand),
Mysore State, Madras State, Travancore-Cochin now
Kerala, Bihar now in Jharkhand, West Bengal and
the then Assam State (now in Meghalaya) and in
various other states. By 1960, these developments
resulted in increasing the hydro capacity to about 1920
MW from 508 MW at the time of independence.
The first systematic and detailed study to assess
the hydroelectric power potential of the country was
undertaken during 1953-59 by the Government of India
in the then Central Water & Power Commission
(CW&PC). This was on the basis of the then
prevailing technology, available topographical and
hydrological data. The study carried out by CW&PC
(Power Wing) placed the country’s power and annual
energy potential, respectively as 42,100 MW at 60%
load factor corresponding to annual energy generation
of 221 billion units. The subsequent re-assessment
studies carried out by the Central Electricity Authority
(CEA), Ministry of Power, during 1978-87 have placed
the hydropower potential at 84,044 MW at 60% load
factor and the economically exploitable hydro potential
as 1,48,701 MW. The re-assessment studies
undertaken by CEA were to provide an update of
hydroelectric potential of the country in order to
facilitate a quick follow-up and undertake the
development of the country’s exploitable hydropower
capacity. A total of 845 schemes were identified to
yield 442 billion units of electricity. In addition, 56 sites
were also identified in various regions of the country
for the development of pumped storage schemes with
an assessed aggregate installed capacity of about
94,000 MW. The largest potential estimated was
2Central Board of Irrigation and Power Hydropower in India
Publication (2012)
Hydro Energy Sector in India: The Past, Present and Future Challenges 957
37.91% in the north eastern region followed by 35.88%
in the northern region. The bulk of potential in the hill
states of Jammu & Kashmir, Himachal Pradesh,
Uttarakhand, Arunachal Pradesh and Sikkim were
then yet to be developed.
Though the country ranks fifth in terms of
available hydropower potential globally, much remains
to be achieved despite their timely identification. This
is a challenge while one takes pride in what could be
achieved in a developing country with financial
resource limitations soon after gaining its
independence. Some 177 hydro power stations with
a station capacity above 25 MW (having 617
generating units) provide a total installed capacity of
about 38,748 MW that are operational; and, about 50
projects with an installed capacity of 15,065 MW are
under execution as of December 2011.
The latest assessment reveals the hydro share
percentage to the grid in India as just 19%. The
potential harnessed within India remains at about 15%,
with yet another 7% in various stages of development.
The balance potential of about 78% remains
unharnessed due to many issues and barriers, with
more and more new challenges creeping in before
their development.
Future Prospects – Indian Hydropower
Large Hydropower Potential
The estimated economically exploitable hydropower
potential in India is about 84,000 MW at 60% load
factor with a suggested installed capacity of 148,700
MW3. The Indus, the Ganga and the Brahmaputra,
basins together in the administrative boundary of India
could contribute about 80% of the hydropower. The
majority of India’s hydropower development potential
lies in the key basins of Brahmaputra Basin (66 GW),
Indus Basin (34 GW), Ganga Basin (21 GW), and the
rivers of South India (24 GW). From a total
hydropower potential of 149 GW, India can currently
develop only 40 GW of the assessed potential.
Small Hydropower Potential
India’s small (capacity less than 25 MW), mini (3-25
MW) and micro hydropower schemes (with capacity
less than 3 MW) have been assessed at 6781.81 MW
of installed capacity. Despite such an amazing
opportunity, due to varying reasons, even the small
and mini hydropower plants could not make an
impressive progress.
Should the development of the regional resources
that can be pooled together with cooperation from
India’s neighbouring countries such as Bhutan and
Nepal, the hydropower potential figures (149 GW)
could increase further by over 50 GW; this can make
South Asia’s energy position quite enviable. The share
of hydro energy will then really boost the desired grid
security of the entire region as a whole even under
extreme variations in the load pattern in summer and
winter. Efforts by India in this direction under
international cooperation mechanism can ensure the
overall welfare of the region, which lags behind many
others such as South East Asia.
The hydropower sector in India today is
considered to be at crossroads as the decline in its
share is impacting the energy grid and its stability.
The hydropower’s share was at a high of 40% in the
1970s and one wonders if the same could ever be
reached again in the future. In hindsight, even in 2006,
hydropower shared about 26% of the installed
capacity of the then total energy generation that stood
at 124 GW. The balance is tilting adversely with the
passage of time. A mid-course correction in our energy
policy for an enhanced focus on hydro energy option
with all encouraging policies, as rapidly as possible, is
a requisite now and this has to consider several new
factors that surfaced after the announcement of
liberal policies two decades earlier to bring in the
private sector with some encomiums.
What is crucial is that the energy segment too is
given an impetus and hydropower potential unique to
regional development obtains the requisite support,
not only from the national budgets but also from
international funding agencies. The role of India is of
importance. The challenges that the sector faces are
numerous and all pervasive to social, political,
3Central Electricity Authority official website http://
www.cea.nic.in/hydro_wing.html; see the report annex, listing
region-wise development in hydropower (above 25 MW)
958 M Gopalakrishnan
environmental, economic and engineering dimensions
with the geological and geotechnical risks that are
inherent in Himalayan river valley projects.
India’s Power Grid
India’s power system is divided into five major regions
namely, the northern region, western region, southern
region, eastern region and north-eastern region. It is
well-known that each of the regions faces distinct
issues. While the eastern and north-eastern (NE)
regions are power abundant, the northern and western
regions are power deficit essentially due to greater
power demands. The hydropower potential is largest
in the NE region and lies in Brahmaputra and Barak
basins but it is a fact that not much could be
accomplished in the last seven decades: nearly 98%
of the available resources remain to be harnessed in
this region. A similar comparison indicates that the
northern, eastern, western and southern regions have
79%, 77%, 23% and 33% untapped hydropower
potential, respectively.
The CEA and Ministry of Power (MoP) are the
nodal agencies involved in power sector planning and
development in the Centre for accomplishing the
Government of India’s ‘‘Power Vision’’. Being a
concurrent subject under the Indian Constitution,
electricity is generated, transmitted, maintained and
the hydro projects are developed by the Central and
State authorities. Since liberalization, independent
power producers (IPPs, under private sector
participation) were encouraged to participate in the
power sector and this segment had also contributed,
since the last two decades impressively though not to
the expected levels. The primary role continues to be
that of the states besides a number of central projects
undertaken by the public sector undertakings such as
National Hydro Power Corporation (NHPC), Sutlej
Jal Vidyut Nigam (SJVNL), Tehri Hydro Project Ltd.
(THDC), North Eastern Electric Power Corporation
Ltd. (NEEPCO) and National Thermal Power
Corporation (NTPC) who were also enthused to take
up hydro projects. With the central policy providing
the overall direction for development, the states decide
their needs for power generation, distribution and
management systems.
Energy Development and India’s Water
Resources Sector – Mutual Issues
The development of water resources and its
management is equally important when dealing with
all forms of energy sector, and particularly hydro
power. The subject ‘‘water’’ lies with the states as
per the Constitution and the role of the Centre in an
effective manner in water issues have been rather
persuasive than directive, so far, despite certain
available provisions as per River Boards Act 1956.
The establishment of the River Boards was left purely
as a voluntary measure for the states concerned in a
shared river basin and despite differences in water
sharing of the basin in several cases, none of the states
invoked the provisions to request the Centre to
constitute a River Board for the basin issues. The
Centre felt that it could only propose a River Board
when there is a solicitation to that effect from Basin
States which was never the case since 1956.
The funding support for the state-sponsored
Water Resources Development (and management)
Projects could of course play as a catalyst to the
Centre’s intervention and this has been used to
encourage the project planning and development in a
manner that helps avoid conflicts between basin states.
Besides, several centrally sponsored schemes are
declared as ‘‘National Projects’’; and, these are so
Table 1: Station-wise installed capacity of H.E. stations
(above 25 MW) in the country4
Region No. of Utility/ No. of Units Capacity
Stations X size MW in MW
Northern 67 228 17487.27
Western 28 101 7392.00
Southern 68 243 11432.45
Eastern 17 61 4078.70
North Eastern 10 29 1242.00
All India Total 190 761 32182.25
4Central Electricity Authority official web site http://
www.cea.nic.in/hydro_wing.html; see the report annex, listing
region-wise (station-wise) installed capacity in the country (above
25 MW)
Hydro Energy Sector in India: The Past, Present and Future Challenges 959
articulated and shaped to take on board multi-state
interests as well as national objectives, at large.
Since hydropower development involves water
resources, the responsibility of hydro-project
development stayed (and remains so even now),
primarily with the state agencies; however, in respect
of inter-state rivers, the Centre’s role in ensuring
fairness and acceptability for all parties continues to
remain a primary factor for projects to get initiated
and this task takes considerable time. This adversely
impacts the speedy implementation of several large
projects including the long distance water transfer
projects that has a hydro component of over 34,000
MW (popularly known as interlinking of rivers or ILR)
among other benefits such as irrigated agriculture,
flood and drought mitigation, navigation and ensuring
reasonable environmental flows.
While the private sector was enthusiastic to step
in when private participation in energy generation
opened up in 1990s, there were other hurdles that
had lessened the initial spirit and enthusiasm of the
private sector which looked forward to certain new
policy supports from time to time after experimenting
with the effects of several liberalization measures
announced for their entry, ever since 1992.
The energy sector in India remains largely public
with a share of nearly 89% in the total installed
capacity, even now.
Risks and Benefits – Hydropower
While the hydropower stands out as a class of its
own right, the sector faces several inevitable
competition from among other energy options and this
is exasperating. Owing to the large quantities of water
required to be stored in large dam-based storage
projects, hydrologic uncertainties creep in. This is also
the case with the ‘run-off’ type of developments. The
other major risks that surface even during the project
planning, design and construction are the geological
and geotechnical risks. The Himalayan projects are
particularly complex.
The meeting of ever-growing energy demand
cannot be dealt with isolatedly, without also addressing
durable and acceptable trade-offs between ‘‘water
and energy’’ and ‘‘water, energy and climate change
mitigation’’.
In terms of electrical power generation, the
intermittency of most renewable energy options such
as solar and wind, had an inherent problem (i) how
could a ‘‘well-secured load balance’’ on grids be
maintained against the backdrop of ever-increasing
demand and (ii) energy storage. Two options are
currently more feasible and cost-effective than others
– hydropower and natural gas – both having their
advantages and disadvantages from water resource
and climate change perspectives, as well as broader
social, environmental and economic considerations.
Hydropower has a well-deserving recognition as the
best option in terms of energy storage (with large
dam-backed storage option) and quick dispatch power
in India’s energy development programmes given that
the resource itself is renewable. However, the
tendencies tilt in favour of opting for quick-fix solutions.
These, among others, include (imported) natural gas.
This can pose a threat, counterbalancing aspirations
for self-reliant sustainable energy security in the light
of global economic upswings and downturns and
climate change associated threats with regard to
bioenergy.
Implementation Challenges in the Hydropower
Sector, after Selection of Projects
Hydropower has the following benefits and challenges:
Abundantly available potential for hydropower
development, particularly in the Himalayan river
basins
Hydropower involves no extra foreign exchange
outgo year after year and insulates the nation
with the relative independence in its price. Unlike
gas power that is prone to international market
such as oil prices, and energy costs, it is self-
reliant energy when developed to a sufficient
extent in the country.
Hydropower is subject to no inflationary trends
once construction phase is over as the ‘‘raw
material’’ for power generation is free from such
effects.
960 M Gopalakrishnan
Hydropower is green energy and hence stakes
better claim as an environment-friendly energy
option.
Hydropower development can take onboard a
few of the concerns such as submergence-
induced involuntary displacement of people
through proper ‘‘mitigation’’ measures to ensure
that the adverse effects are minimized to affected
families and sustainable solutions that provide
welfare to their families and successive
generations.
Hydropower projects support socio-economic
development of remote areas as the project site
is developed and it is a development option that
helps to reach areas that remain neglected,
otherwise.
Hydropower is not only cost-effective and a
renewable form of energy but also multi objective
multi-purpose development option as it extends
additional benefits such as irrigated agriculture,
secure food production and hence food security
on a self-reliant basis, flood control, tourism, etc.
The hydropower development stands retarded
in India, especially in recent times. The challenges
are many apart from a few mentioned elsewhere,
earlier. Hydropower development is unable to face
competition from other energy options despite its
attractiveness.
National Policy (1998) on Hydropower5
With an aim to accelerate the development of
hydropower, Ministry of Power (MoP), Government
of India, introduced the National Policy on
Hydropower Development in 1998. The policy
document has identified and responded to the major
issues and barriers. The objectives of the National
Policy document on Hydro Power Development, 1998
are as follows (as stated in the document):
"
To ensure targeted capacity addition during 9th
Five
Year Plan (and subsequent plans) with central,
state
and private hydropower projects contributing
3455,
5810 and 550 MW respectively, the
government at
the centre pushed forward all-round
efforts. The 11th
Five Year Plan aimed
subsequently at a capacity
addition of 18,781 MW
in the hydropower sector with
the same vigour.
Accordingly, an assurance to speed
up steps such as
execution of all CEA-cleared projects,
update and
clear pending detailed project reports of
all
identified schemes, etc., ensued. Small and mini
hydro projects are especially viable for remote and
hilly areas where extension of grid system is
comparatively uneconomical
"
.
In 2001, the CEA introduced a ranking study which
prioritized and ranked the future executable projects.
As per the study, 399 hydro schemes with an
aggregate installed capacity of 106910 MW were
ranked in A, B & C categories depending upon their
inter se attractiveness. This was followed by a 50,000
MW hydro initiative in which preparation of Pre-
Feasibility Reports (PFRs) of 162 projects was taken
up by CEA through various agencies. The PFRs for
all these projects (with the first year tariff less than
INR 2.50/kWh) were identified for preparation of
Detailed Project Report (DPR). The governments in
the centre and states aimed to realize 100%
hydropower potential of the country by 2025-26 with
the new liberal measures spelt out in the policy.
The objectives were to be able to surmount some of
the identified engineering, geological, geotechnical,
hydrological, economical as well as financial and other
social/environmental constraints.
Despite the above, hydro-development is lagging
behind and investments, both public and private
sectors, could not provide the desired impetus. A
review of difficulties of the private sector needs better
appreciation.
A few reasons for hesitation by independent power
producers and planners to participate in hydro-
development were the following:
(a) Long gestation period
Time-consuming process for project clearances
Until recently, the national focus has been on
thermal generation.
5Please see reference 4
Hydro Energy Sector in India: The Past, Present and Future Challenges 961
Highly capital intensive and absence of
committed funds
Technical, including difficult investigation,
inadequacies in tunnelling methods
(b) Inaccessibility of the area
(c) Geological surprises (especially in the Himalayan
region where underground tunnelling is required)
(d) Technical constraints due to complex geological
nature of the projects
(e) Managerial weakness (poor contract
management)
(f) Problems due to delay in land acquisition and
resettlement of project affected families
(g) Law and order problem in militant-infested areas
(h) Financial (deficiencies in providing long-term
finance)
(i) Tariff-related issues
Absence of long tenure loans makes it difficult
for private investors
Advance against depreciation is disallowed
(j) Return on equity (ROE) (around 14%) is not
attractive enough for investors
(k) Dearth of competent contracting agencies to
construct the project in the remaining dams and
hydro plant sites that are increasingly quite
challenging where infrastructure such as roads,
etc. are unavailable, in totality. In a few cases,
security issues and internal disturbances are not
uncommon.
(l) Inter-state disputes as water is a state subject
has however remained a bottleneck.
(m) The poor financial health of State Electricity
Boards (SEBs).
(n) Environmental interests bringing additional new
issues such as the hydro reservoirs impact
‘‘greenhouse gases’’, etc.
(o) The civil society’s activism, especially on other
sociocultural issues got triggered, in addition.
(p) There were sacred shrines and temples along
the rivers and at the confluence of rivers sites
andthough in all such cases, plans are dovetailed
to relocate them in a socially best possible
manner, these were questioned and status quo
was demanded. They are roadblocks in a few
cases.
E Flows
Environmentalists urging rivers to be left as such,
activists arguing for a higher stake for eco-flows for
protecting aquatic ecosystem such as riverine fish,
dolphins, etc., issues connected with species, flora
and fauna and protection of archeological monuments
and places of worship commonly found in the
development sites results in extended dialogue and
judicial interventions. In a recent case, projects that
were being developed were halted due to such
perceptions and litigation even after sizeable
investment (Lohari Nagpala HEP of NTPC). The
project is in an abandoned status now, with new threats
for decommissioning the head race tunnel that was
halfway through, after surmounting tunnelling
problems with a tunnel boring machine (TBM), with
certain unique site-specific solutions while problem
shooting.
Thus, the old as well as new issues are, oftentimes,
affecting the smooth progress of hydro projects, even
after the policy announcements.
The bottlenecks that retard the progress in hydro could
also be traced to the multiplicity of agencies involved
in the hydro sector such as Ministry of Environment
& Forests (for forest clearance and ecological flow
assessments and provisions), the issues of affected
families due to projects in the submergence areas and
other affected ancillary structures.
The issue of resettlement and rehabilitation has been
always by and large in the fore as a social problem
and despite many efforts such as the national policy
supplemented by state-level policies that are further
liberalized substantially in many projects, the delays
due to agitation from project affected people with some
support from NGOs and civil societies continue to
962 M Gopalakrishnan
impede the development of hydropower projects to
the extent envisaged.
National Resettlement and Rehabilitation (R&R)
Policy6
The National R&R Policy-2007 provides the basic
minimum requirements, and all projects leading to
involuntary displacement of people must address the
rehabilitation and resettlement issues comprehensively.
The state governments, public sector undertakings or
agencies, and other required bodies are given in the
policy further liberty to put in place liberalized benefit
levels than those prescribed in the NRRP-2007. These
have enabled several successful attempts to address
the issues of concern so that the development could
proceed as planned for the overall betterment of the
nation and assure the targetted GDP.
The NRRP 2007 took on board the need to
provide succor to the asset-less rural poor, support
the rehabilitation efforts of the resource poor sections,
namely small and marginal farmers, SCs/STs and
women who have been displaced. Besides, it sought
to provide a broad canvas for an effective dialogue
between the project-affected families and the
administration for resettlement & rehabilitation to
enable timely completion of project with a sense of
definiteness as regards costs and adequate attention
to the needs of the displaced persons. The objectives
of the policy are to minimize displacement, plan the
R&R of PAFs including special needs of tribals and
vulnerable sections to provide better standard of living
to PAFs and to facilitate harmonious relationship
between the Requiring Body and PAFs through mutual
cooperation.
National Water Policy 2002 (and the Draft
Revision in Consultation of NWP 2012)7
The National Water Policy 2002 explicitly brings out
national-level preferences in water use. Hydropower
ranks next to drinking water and irrigation in the water
allocation priorities in the relevant Section 5. Other
energies that consume water are apparently to be
considered under ‘‘other industrial use’’ ranked
subsequently after ‘‘ecology’’ but prior to
‘‘navigation’’. In the recent draft revision of National
Water Policy, the need for storage finds a place in the
increasing water scarcity scenario. Apart from other
measures for water harvesting, large dams also have
been explicitly mentioned; the importance of prudential
water use and management on a basin level is an
interesting addition. Setting up of basin level authorities
with the cooperation of the basin states, new
institutional mechanism etc., are welcome features
as they can pave way for the holistic planning and
operation of a system of basin water storage for
multiple uses including hydro plants, for optimal basin
water resources management. The earlier NWP 2002
had been explicit on issues concerning storage, R&R,
etc. and in the light of other parallel national policies
brought out by line ministries, the focus in the revised
draft (2012) has been on efficiency and water savings.
Renovation, Modernization and Up-rating
(RM&U)
In order to augment the hydropower generation and
improve the availability of existing hydropower
projects, the Government of India has laid emphasis
on renovation, modernization and up-rating of various
existing hydroelectric power projects in the country.
RM&U of the existing/old hydroelectric power
projects was considered the best option, being a cost-
effective and quicker solution option to achieve than
setting up of green field power projects. The cost per
MW of a new hydropower project hovered around
INR 4 to 5 Crores (2006-07); whereas the cost per
MW of capacity addition through up-rating and life
extension of old hydro power project worked out to
just about 20%. It was opined that the RM&U of a
hydro project can be completed in 1 to 3 years
depending upon scope of works as compared to
gestation period of 5 to 6 years for new hydro projects.
Under the hydro RM&U programme, 33
hydroelectric projects (13 up to the 8th Five Plan &
20 in the 9th Five Plan Plan) with an installed capacity
of 6174.10 MW were completed by the end of the
9th Plan. During the 10th Plan (2002-07), 47 hydro
power projects with an installed capacity of 7449.20
MW were selected. For the 11th Plan (2007-12), a
6Please see reference 8.
7Please see reference 10.
Hydro Energy Sector in India: The Past, Present and Future Challenges 963
total of 59 hydroelectric power projects having an
installed capacity of 10325.40 MW, were programmed
for completion of RM&U works to yield a benefit of
5461.18 MW.
Capacity Addition Scenario 11th Five Year Plan
(2007-12)8
The plans of the government to wipe out all energy
shortage by the end of 2011-12, i.e. by end of 11th
Plan and also to provide spinning reserve and ensure
uninterrupted quality power at affordable cost did
make some impact. With coal-based power plant as
the backbone of the Indian power sector, during the
11th Five Year Plan, there was a capacity addition of
about 47,000 MW coal-based plant with the
introduction of super critical technology.
Stage II: Detailed investigation, preparation of
Detailed Project Report (DPR) and pre-construction
activity including land acquisition
Stage III: Execution of the project after
investment decision through PIB/CCEA
(Small hydropower projects up to 25 MW can be set
up in private sector without central government’s
involvement. Techno-economic clearance needs to
be obtained from CEA if the estimated cost of the
project exceeds INR 2500 million and/or there are
inter-state issues involved).
To expedite early execution of hydro projects,
bankable DPR based on detailed survey should be
prepared to avoid geological uncertainties. Survey &
investigation and analysis of geological, geo-
morphological, hydrological data, etc. should be done
at the time of preparation of a DPR itself in order to
minimize the impact of risks. The survey and
investigations should be expedited with the latest state-
of-the-art technology. It is necessary to prepare a
shelf of projects for execution. The quality of DPRs
should be of high standard which should infuse
confidence in the national/international developers to
take up the execution of projects without losing time
in rechecks, etc. at the same time, contract monitoring
as distinct from project monitoring should be
emphasized and land acquisition and infrastructure
development be settled and completed before the start
of the project.
Pumped Storage Hydropower
The pump storage potential was a new type of
hydropower identified to be harnessed as it was
considered quite helpful in optimizing energy
generation from base load thermal stations and in
meeting peak load and system contingencies. Only
2.45% of the total identified potential of 94,000 MW
pump storage schemes was assessed to have been
harnessed while another 2.5% were under construction
stages. A new exclusive programme/action plan for
pumped storage schemes was therefore encouraged
to tap the vast potential.
8Central Board of Irrigation & Power 2012: a Publication
on Hydropower
9Internal circulars
Table 2: Sector-wise plan of capacity addition in the 11th
plan
Prime Movers Hydro Thermal Nuclear Total
(MW) (MW) (MW) (MW)
State Sector 3957 15538 —19495
Central Sector 11080 19880 3160 34120
Private Sector 3744 11145 —14889
Total 18781 46563 3160 68504
Steps taken from time to time to accelerate
hydropower projects in India
Clearances of projects with a ‘‘Three-stage
clearance system’’9
A three-stage clearance system has been set
up to enable relatively faster and hindrance-free
clearance of suitable projects and includes survey,
investigation and pre-construction activities. The
three-stage clearance system works as follows:
Stage I: Survey and preparation of pre-feasibility
reports
964 M Gopalakrishnan
Standardization in Hydropower and the Status of
Engineering of Indian Hydro Projects in Regard
to the Global Hydro Projects Including Innovations
Hydropower development has a unique character that
demands site-specific solution not only in articulating
the layout of headworks (diversion or storage dam
with other objectives embedded), but also in every bit
of its several components such as desilting chambers
for desanding to draw as much as possible, silt-free
water to prolong turbine life, water conductor systems
in long tunnels or surface channels, penstocks with
surge chambers where needed, machine hall/
transformer hall in case of underground structures
with geological and geotechnical challenges, etc. Tail
race arrangements for letting water back to the stream
can be included in this list.
There is no universally accepted standard in
hydropower. The International Congress on Large
Dams (ICOLD) and recently the International Hydro
Power Association are bringing out general bulletins
(ICOLD bulletins are over 180 in number). Each
aspect of hydropower project design is attempted to
be influenced by Indian standards (leaning upon
international bulletins or earlier CWC manuals), but
each large or medium hydro project, being unique
adopts its own distinct design as per compelling
circumstances encountered at each site.
Hydro projects are site-specific. Tremendously
sizeable hydro development in recent times has been
witnessed globally. Examples such as the Chinese
Three Gorges Project or Brazil’s Itaipu Project display
as to how hydro power could strengthen the nation’s
power potential in a big way; but as one could easily
appreciate the geo, political, social and other
environment matter a good deal in planning boldly very
large structures in Indian settings, given the complex
decision-making processes in democratic India
involving many states and disciplines that cut across
and spill beyond pure engineering sciences. India has
experienced enough hiccups with respect to Sardar
Sarovar Project or Tehri Hydro Development Project
with the highest rock fill dam in the Himalayas. The
resistance to hydro project development in any form,
storage-based or the run-off plants continues
unceasingly notwithstanding the proximity to green
power development that hydropower offers. Thus, a
comparison of Indian hydro sector with that of global
hydro development and their particular features is
difficult.
The National Electricity Policy 1998 adequately
attempts to address the aspirations of hydro sector as
well as the challenges that one confronts in hydro
development. Elsewhere in the article, this aspect has
been elaborated. The elaboration of each one of these
challenges, particularly when it transcends the
engineering disciplinary features (social, socio
economic, political, geographic/administrative state
boundaries and water sharing issues, legal and others
of similar nature) is beyond the scope of this chapter.
Infrastructural Issues, Viewed from Private
Participation in Hydro Sector
The independent power producers (IPPs) feel a strong
a need to set up a single window clearance for hydro
projects. Various authorities such as CEA, the
Ministry of Finance, Ministry of Environment and
Forests, etc. who are involved in the appraisal of a
hydro power project before it is certified for
development. It is being increasingly felt should get
their actions together by a time-bound manner. A single
window dispensation/authority is advocated so that a
project can be cleared without many hassles. Any
hydro project submitted for clearance should receive,
as per their demand, all the statutory/non-statutory
clearances/approvals within six months of submission
of the proposal. The certification of commercial
viability should be given within 15 days, especially to
private developers. The Techno-Economic Clearance
(TEC), MoEF and CCEA clearances should be given
within 1, 2 and 2 months respectively, as voiced by
these groups. The Ministry of Power should have a
set of hydro projects cleared from all the angles to
avoid hold-up after project commencement by private
sector players.
Also unidentified are the long delays on account
of land acquisition for the project. The process of
land (both private and government) acquisition for a
project differs from state to state as per the Land
Acquisition Act. The government should amend the
Land Acquisition Act and include hydropower projects
Hydro Energy Sector in India: The Past, Present and Future Challenges 965
in the priority list and state governments should be
persuaded to provide land to the project authority in
the agreed time frame to facilitate shifting of project-
affected persons (PAPs).
Hydro projects which involve lesser risk element and
entail lesser capital investment can be considered for
development in the private sector. Public sector entities
could preferably take up all.
(a) Multipurpose projects
(b) Projects involving inter-state issues and in inter-
state river systems
(c) Projects involving cooperation with neighbouring
countries
(d) Projects for complementary peaking with
regional benefits
(e) Projects in the north-eastern region, etc.
Financial Issues Generic to the Hydro Sector
There is also a need to off-load indirect cost
components on the hydro project. Many hydro projects
are located in troubled areas infested by militancy
and terrorist activities. There is an urgent need to
amend the present policy of the government with
regard to charging the entire security expenditure from
concept and until commissioning on the project cost.
However, the recurring expenditure incurred on
security, once a project is started, could to be charged
on the project developer.
The cost of access roads should not be included in
the project cost as development of hydro projects
triggers economic and commercial activities around
the project site and results in economic benefit to the
state. Inclusion of R&R, flood moderation costs, along
with the provision of 12% free power to the state in
the capital cost of the project needed reconsideration
as the provision did not apply to thermal power
projects.
Although the government planned to achieve 50,000
MW of additional power by the end of the 11th Plan,
and brought in private players, it is argued that
incentives such as benefits/concession in custom duties
and local levies/taxes on project components are being
denied for projects even up to 250 MW resulting in
low investments in new power schemes.
A premium as well as lease rent @10% is charged
where forest land is diverted for a hydro power
project. This is also a point of dialogue between the
state governments and developers, as land is a state
subject matter as per the Constitution.
The Way Forward
Notwithstanding the apparent efforts of the
Government of India by enabling provisions for
promoting large-scale development of hydropower in
India including a few that brought in a new set of
greater private entrepreneurs, problems persist
unfortunately due to certain inherent conflicting
policies and issues. There is no doubt that several
major issues plaguing the hydropower sector have
been identified but mending the barriers requires
working together at various levels of the ministries in
the Centre, and states with the Centre.
Some of these issues have been discussed earlier
in this chapter. A few aspects may merit greater
attention in the days ahead and the way forward is as
follows:
Rrecommendations by the Standing Committee
for hydropower development are crucial and
should be enforced for maximum benefit to the
Indian hydropower sector.
Consistent policies and regulations should be
made through the states. Any variation in policies
and benefits offered by different states will cause
problems in development of many project sites
in different states.
Large-scale hydro projects which involve
greater risks due to geological uncertainties, etc.
should be implemented by the state agencies,
while the relatively safer projects with reduced
risks and smaller capital investments should be
offered to private entrepreneurs.
A single window clearance set up for hydro
projects will solve most problems related to
clearances, etc.
966 M Gopalakrishnan
The hydro sector needs to develop a set of
competent civil engineers/contracting agencies
that have the technical and management
expertise to conceptualize and develop a project
of the required scale.
Contract management practices with a
transparent system of selection of contractors
could resolve any disputes that may arise in the
course of execution of various works of
complexities in underground works such as long
tunnels that can pose several risks such as
geological and geotechnical besides being
hydrogeological in nature. This also applies to
underground power houses as well surface
power houses with many hill slope instability
problems and surge shafts and other cavities
such as de-silting chambers underground and
other chambers for locating valves and expansion
chambers.
Development of each of the hydro projects is
unique and may require special provision that
could help obviate difficulties, be it of technical,
social or environmental nature. Once the project
stands launched, revisiting the very scope of the
project such as those happening in Ganga Valley
or elsewhere, are detrimental to the country’s
larger interest in protecting the energy needs by
diversifying the generation to assure a stable
grid in a sustainable manner.
More and more of the pumped storage schemes,
involving unique solutions depending on site
possibilities shall add more capacity to
hydropower generation.
Conclusion
Hydroelectricity is currently the largest renewable
source for power generation in the world, meeting
16% of the global electricity needs in 2010 (IEA, 2012).
Globally, over the last decade, the growth in electricity
generation from additional hydro capacities has been
similar to the combined growth of all other renewables.
It has also been recognized the world over that
hydropower when associated with water storage in
reservoirs, can store energy over weeks, months,
seasons or even years. As spinning turbines can be
ramped up more rapidly than any other generation
source, hydropower and pumped storage contribute
to the stability of the electrical system by providing
flexibility and grid services; therefore, providing the
full range of ancillary services required for the high
penetration of variable renewable energy sources such
as wind and solar.
India needs to catch up on its hydropower
generation with the rest of the world. There has always
been an anticipation that the share of hydropower
would reach around 40% for which ample scope exists
in India. However, the steady decline in hydropower
share and the looming further decline from its 19% of
grid share should be reversed for the overall welfare
of energy mix.
The share cost of hydropower generation in a
multipurpose reservoir scheme is far less than the
one projected; and, it will continue to be the least cost,
sustainable development solution in energy generation.
In the ever changing dynamism that the globe faces
with climate change, economic swings and downturns
with fuel policies and global compulsions to contribute
to greenhouse gases, at the least, hydropower would
always remain the best sustainable energy option.
It is hoped that with the all-round efforts and
technological advancements, the most intricate
Himalayan projects could also come up with regional
cooperation and strength. India should show the way
to lead the South Asian power stability by utilizing the
enormous untapped hydropower potential in the
Himalayas in the decades to come.
The engineering community would be ready to
meet any challenges, having demonstrated their
immense capabilities in accomplishing very
challenging projects such as the high dam in Tehri in
a highly seismic environment, the longest tunnel and
underground works in Nathpa Jhakhri, impressive
Tala Project in Bhutan etc., to quote a few recent
engineering marvels.
Hydro Energy Sector in India: The Past, Present and Future Challenges 967
References
1. Central Board of Irrigation and Power 2012 Publication
No. Hydro Electric Projects in India
2. Ministry of Power (2003) The Electricity Act 2003
3. IEA (2012) Measuring Progress towards Energy for All
2012. World Energy Outlook France International Energy
Agency (IEA)
4. Government of India documents, Ministry of Power (1998)
National Hydropower Policy
5. Government of India documents, Ministry of Power (2005)
National Electricity Policy
6. Government of India documents, Ministry of Power
(2012a) Power Sector at a Glance (Available @ http://
powermin.nic.in/)
7. Government of India documents, Ministry of Power
(2012b) Report of the Working Group on Power for
Twelfth Plan (2012-17) accessible at http://
planningcommission.gov.in/
8. Government of India documents, National Rehabilitation
& Resettlement Policy (NRRP) (2007)
9. Government of India: Central Electricity Authority,
Ministry of Power Preliminary Ranking Study of Hydro
Electric Schemes (2002)
10. Ministry of Water Resources Government of India (2002)
National Water Policy and subsequent revision (2012)
11. Unpublished internal reports and other information in
CWC, CEA, CBIP and other agencies, as relevant.
