G20 subsidies to oil gas and coal production: India Vibhuti Garg and Ken Bossong Argentina Australia Brazil Canada China France Germany India Indonesia Italy Japan Korea (Republic of) Mexico Russia Saudi Arabia This country study is a background paper for the report Empty promises: G20 subsidies South Africa to oil, gas and coal production by Oil Change International (OCI) and the Overseas Turkey Development Institute (ODI). It builds on research completed for an earlier report The fossil United Kingdom fuel bailout: G20 subsidies to oil, gas and coal exploration, published in 2014. United States For the purposes of this country study, production subsidies for fossil fuels include: national subsidies, investment by state-owned enterprises, and public finance.A brief outline of the methodology can be found in this country summary. The full report provides a more detailed discussion of the methodology used for the country studies and sets out the technical and transparency issues linked to the identification of G20 subsidies to oil, gas and coal production. The authors welcome feedback on both this country study and the full report to improve the accuracy and transparency of information on G20 government support to fossil fuel production. A Data Sheet with data sources and further information for India’s production subsidies is available at: http://www.odi.org/publications/10073-g20-subsidies-oil-gas-coal-production-india priceofoil.org Country Study odi.org November 2015 Background remained substantial at $11 billion in 2014–15 (MoPNG, India has substantial fossil fuel reserves, including 61 2015b). Similar consumer subsidies of approximately billion tonnes of coal, 5.7 billion barrels of oil and 1.4 $12 billion in 2012–13 existed in the electricity sector. trillion cubic feet of gas (BP, 2015). The Ministry of Coal Although these subsidies may drive demand for further (MoC) is responsible for overseeing the management production of fossil fuels and electricity (the majority of of India’s coal industry through a number of agencies which is fossil fuel-based), these subsidies are directed and companies, including Coal India Limited (CIL), a toward consumers and, therefore, are not included in this 90% state-owned enterprise. India’s upstream oil and report. gas industries are overseen by the Ministry of Petroleum The Central Electricity Authority (CEA) monitors the and Natural Gas (MoPNG) and, despite the markets mixture of public and private companies in the Indian opening up to private investment in the 1990s, upstream power sector, which is primarily fossil fuel based and is and downstream petroleum markets continue to also be growing rapidly (CEA, 2015a). dominated by state-owned enterprises (SOEs). Coal is India’s primary source of energy and the country is the world’s third largest coal producer after China and National subsidies the United States (Enerdata, 2014). India produces some oil and gas, however crude oil is the country’s single largest Tax expenditure import item with India also dependent on the import of The Indian tax regime includes a number of tax breaks a range of other gas and petroleum products (Enerdata, that benefit the exploration and production of fossil fuels. 2014). In 2014, imports accounted for 72% of oil These include the Ministry of Coal providing coal and consumption, 35% of gas consumption and 13% of coal lignite companies with $27 million as an excise duty rebate consumption (EIA, 2014). and another $12 million excise duty rebate on account of CIL oversees, and is largely responsible for, the the companies developing transportation infrastructure in production of coal, which fuels more than 70% of India’s rural areas in both 2013–14 and 2014–15 (MoF, 2015). power plants (CEA, 2015). Two SOEs – the Oil and Coal mining equipment may also have attracted rebates Natural Gas Corporation (ONGC) and Oil India Limited of customs duties of the order of $2 million per year on (OIL) – also dominate India’s upstream oil and gas average.1 However, no data was available to confirm this production. However, the opening up of the oil sector and and as a result we have not added the numbers to the total the government’s gradual withdrawal from its ownership subsidies quantified. Further tax breaks that could not be of ONGC has led to several private companies entering quantified because of a lack of data include: the option to the market. More than 70% of India’s domestic petroleum log all exploration costs as immediate expenses during the demand is satisfied by imports to India’s refining sector. first year of production (or when incurred for unsuccessful India’s natural gas consumption has also grown, driven by wells) instead of depreciating costs over time; accelerated demand from the electricity sector (37% of consumption) depreciation of capital research and development (R&D) and for fertilisers (23%) which together led to the need for costs incurred during exploration or production activities imports of Liquid Natural Gas (LNG) from Qatar starting (Ernst and Young, 2015; Deloitte, 2014). in 2004 (World Energy Council, 2012; EIA, 2013). Until Another way in which the government has held the 2006, the state-owned enterprise GAIL functioned as a prices of certain petroleum products below market rates near-monopoly in the transmission and distribution of gas is by exemptions in excise and custom duties. Most of though this appears to be changing as the government has these subsidies are consumer-focused but an example begun to reform gas pricing and to deregulate downstream of a producer subsidy is where LNG bought by power activities. companies is exempted from customs duty. It was, however, This reform is part of a wider drive to remove or reduce not possible to quantify the value of this exemption. consumer subsidies and move away from government fixing the retail prices for certain petroleum products Direct spending (LPG, kerosene, diesel and gasoline). Although fossil fuel The total capital outlay by the Ministry of Petroleum and producers take on the burden of some of these costs, much Natural Gas on petroleum under the heading ‘exploration of the cost of price fixing is covered by payments from and production of crude oil and natural gas’ was nil in government budgets. In spite of this deregulation of petrol 2013–14 (Controller General of Accounts, 2014) compared prices (in 2010) and diesel prices (in 2014) and the global to $45.7 million for 2012–13 (Controller General of fall in oil prices, costs to the government of price fixing still Accounts, 2013). The Oil Industry Development Board 1 Calculation by authors. Before 2012–13, goods required for coal mining projects attracted a concessional basic customs (import) duty rate of 5% against the normal rate of 12.5%. Full exemption from basic customs duty is applied to coal mining projects from 2012–13 onwards. This exemption is available only for machinery imported under the import scheme. 2 G20 subsidies to oil, gas and coal production (OIDB) under the Ministry of Petroleum and Natural Gas, outlays in 2015–16 and 2016–17 will total $554 million provides direct support to R&D activities that are ‘useful and $633 million, respectively (MoP PSDF, 2015). to the oil industry’ and ‘for appraising the unexplored/ partly explored acreage’. The cost of this research was Other support mechanisms reported as $4 million in 2013–14 (OIDB, 2014). The India does not have any other national support government also funds a number of research institutes mechanisms on fossil fuel subsidies. and universities including the Rajiv Gandhi Institute of Petroleum Technology (RGIPT), which focuses on research into enhanced oil recovery (RGPIT, 2010). Budgetary State-owned enterprise investment estimates suggest $7 million was granted to the institute in Investment by SOEs in fossil fuel production represented a both 2013–14 and 2014–15 though it was not possible to large portion of overall government support with a number determine the portion of this funding that supports fossil of state-owned industries being involved in the production fuel production (MoPNG, 2014). of coal, oil and gas and also in the transportation and The Ministry of Coal supports the production of coal refining of oil and natural gas in India. Table 2 presents via expenditure on R&D, regional exploration and detailed investment by SOEs in the 2013–2014 period.2 The table drilling. In 2013–14 expenditure for these three areas stood includes total capital expenditure as reported by oil and at $2 million, $7 million and $23 million respectively, and gas, coal and electricity companies in their annual reports in 2014–15 the values were $1 million, $9 million and for these years. $29 million (MoC, 2015). ONGC (69% state-owned) accounted for 65% of the Despite having been officially deregulated, coal prices country’s crude oil production in 2013 and 2014. The are still determined by consultation between Coal India smaller, but older, OIL (68% state-owned), with operations Limited (CIL) and the government. This arrangement has concentrated in the north-east of India, was responsible led to domestic prices for individual grades of coal being for 10% of the total oil production. The average annual substantially below global prices on an energy equivalent capital expenditure of ONGC and OIL across 2013 and basis, providing substantial benefits for those using coal 2014 was $4.9 billion and $535 million, respectively as an energy input for generation of electricity. For the (Rystad Energy, 2015). These companies also have power sector in particular the price of coal has been held exploration and production projects overseas, including in low in order to convey a subsidy to electricity consumers. Canada, Colombia, Egypt, Gabon, Iran, Libya, Myanmar, An inability to quantify the benefit to the producers (as Nigeria, Russia, South Sudan, Sudan, Timor Leste, the opposed to the consumers) from these actions means United States, Venezuela, Vietnam and Yemen (OIL, 2014).