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REFERENCE NOTE .
No. 3 /RN/Ref./February/2015

For the use of Members of Parliament Not for Publication

SUGAR INDUSTRY IN INDIA

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The reference material is for personal use of the Members in the discharge of their Parliamentary duties, and is not for
publication. This Service is not to be quoted as the source of the information as it is based on the sources indicated at the
end/in the text. This Service does not accept any responsibility for the accuracy or veracity of the information or views
contained in the note/collection.
 SUGAR INDUSTRY IN INDIA

Sugar industry is an important agro-based industry that impacts rural livelihood

of about 50 million sugarcane farmers and around 5 lakh workers directly employed in
sugar mills. Employment is also generated in various ancillary activities relating to
transport, trade servicing of machinery and supply of agriculture inputs. India is the
second largest producer of sugar in the world after Brazil and is also the largest
consumer. Today Indian sugar industry’s annual output is worth approximately
80000 crores1. Surplus production over domestic consumption in the last three
sugar seasons and low exports due to subdued international sugar prices have led to
building up of sugar stocks with the mills and low realization from sale of sugar. This
has adversely affected the financial health of the mills and resulted in accumulation of
cane price arrears2.

PRODUCTION OF SUGAR
Sugar production in India has been cyclic in nature. Every 2-3 years of high
sugar production are followed by 2-3 years of low sugar production. From the sugar
season 2010-11 onwards the country could consistently achieve sugar production more
than the domestic requirements and could also generate surpluses for export3.
Maharashtra and Uttar Pradesh contribute over 60 percent of total sugar production
while rest comes from States like Tamil Nadu, Karnataka, Gujarat and Andhra
Pradesh4. In the 3rd Advance Estimates of the Department of Agriculture and
Cooperation (DAC), released in May 2014, the sugarcane production is estimated at
3,483.8 lakh tons in the current sugar season. The production of sugar during 2013-14
season was estimated at 243 lakh tons as against the estimated domestic consumption
of 240 lakh tons5. The Production of sugar from 2001-02 to 2013-14 is as under:

1
India. Ministry of Consumer Affairs & Food and Public Distribution, Note of Directorate of Sugar, 2014, p.1
2
Lok Sabha Unstarred Question No.3652 dated 5.8.2014.
3
op.cit. Note of Directorate of Sugar, 2014, p.4
4
Indian Sugar: The Complete Sugar Journal, Indian Sugar Mills Association, November 2014, p.40
5
Lok Sabha Unstarred Question no.3787 dated 5.8.2014
 3

Total Sugar Production

Quantity (in lakh Tons)
Sugar season Production of Production of
Sugarcane Sugar
2001-02 2972.08 185.28
2002-03 2873.83 201.45
2003-04 2338.62 135.46
2004-05 2370.88 126.90
2005-06 2811.72 192.67
2006-07 3555.20 283.67
2007-08 3481.88 263.57
2008-09 2850.29 145.39
2009-10 2923.02 189.12
2010-11 3423.82 243.94
2011-12 3610.37 263.43
2012-13 3389.63 251.41
2013-14 3500.21 243.73
Source: National Federation of Cooperative Sugar Factories Limited,
Cooperative Sugar, November,2014, p.26

INDIA's TRADE IN SUGAR

India has been a net exporter of sugar. However, it has been occasional net
importer of sugar depending upon demand and supply situation in the country. As per
the data provided by the Directorate General of Commercial Intelligence and Statistics
(DGCIS), India's export of sugar was highest in 2007-08 and import was on its peak in
2009-10. Import and Export of Sugar from 2005-06 to 2013-14 is as under :

Import and Export of Sugar

Quantity (in lakh Tons)**
Sugar Season Export of Sugar Import of Sugar
(Oct-Sept)
2005-06 15.039 0.07**
2006-07 24.90 0.005**
2007-08 58.23 0.004**
2008-09 2.165 24.47***
2009-10 2.371 41.80***
2010-11 28.14 3.65**
2011-12 36.735 1.886**
2102-13(P) 12.02 17.120**
2013-14(P) 24.457 6.100**
uptoJuly2014
** As per Data furnished by DGCIS Kolkata.
*** As reported by Department of Revenue.
(P) provisional
Source: Note of Directorate of Sugar 2014 p.13
 4

SUGARCANE PRICING POLICY

With the amendment of the Sugarcane (Control) Order 1966 on 22 October 2009
the concept of Statutory Minimum Price (SMP) of sugarcane was replaced with the ‘Fair
and Remunerative Price (FRP) of sugarcane for 2009-10 and subsequent sugar
seasons. The cane price announced by the Central Government is decided on the basis
of the recommendations of the Commission for Agricultural Costs and Prices (CACP)
after consulting the State Governments and associations of sugar industry.

Under the FRP system, the farmers are not required to wait for the end of the
season or for any announcement of the profits by the sugar mills or the Government.
The new system also assures the margins on account of profit and risk to farmers
irrespective of the fact whether the sugar mills generate profit or not and is not
dependent on the performance of any individual sugar mill. In order to ensure that
higher sugar recoveries are adequately rewarded and considering variations amongst
sugar mills the FRP is linked to a basic recovery rate of sugar with a premium payable
to farmers for higher recoveries of sugar from sugarcane6.

Citing difference in the cost of production productivity levels and also as a result of
pressure from farmers' groups some States like Uttar Pradesh, Punjab, Haryana,
Tamil Nadu and Uttrakhand declare State specific sugarcane prices called State Advised
Prices (SAP) usually higher than the FRP. Statutory Minimum Price/Fair and
Remunerative Price for the last ten years given as under:

Statutory Minimum Price/Fair and Remunerative Price

(Rs./Quintal)
Sugar season SMP/FRP Minimum Premium for every
Recovery 0.1% increase
%
2002-03 69.50 8.50 0.82
2003-04 73.00 8.50 0.85
2004-05 74.50 8.50 0.88
2005-06 79.50 9.00 0.88
2006-07 80.25 9.00 0.90
2007-08 81.18 9.00 0.90
2008-09 81.18 9.00 0.90

6
op.cit. Note of Directorate of Sugar, 2014, pp.1-2
 5

2009-10* 107.76 (SMP) 9.50 1.13

129.84 (FRP) 9.50 1.37
2010-11 139.12 (FRP) 9.50 1.46
2011-12 145.00 (FRP) 9.50 1.53
2012-13 170.00 (FRP) 9.50 1.79
2013-14 210.00 (FRP) 9.50 2.21
2014-15 220 (FRP) 9.50 2.32
* The Government of India on October 22 2009 amended the Sugarcane (Control)
order 1966 vide SO2665 (E)/Ess.com/ Sugarcane introducing Fair &
Remuneration Price (FRP) for sugarcane vice SMP for the year 2009-10.
Source: www. Indiansugar.com

PLIGHT OF SUGARCANE FARMERS

Sugarcane growers are facing unprecedented uncertainty because of mounting
cane arrears due to sugar mills. The payment to sugarcane farmers by sugar mills
though statutorily supported by various statues and enforced by the State Government
get affected by the dynamics of domestic market price as well as international situation
related to export possibilities.

The position of cane price payments and arrears for the past few sugar seasons
on a similar cut-off date is as under :-

Season-Wise Cane Price Arrears Position

(in crores )
Season Position as Total Price Total Arrears % of arrears on
on Payable Price Paid price payable

2013-14 15/09/2014 57868.32 50381.41 7486.91 12.94

2012-13 15/09/2013 59707.59 56248.50 3459.09 5.79
2011-12 15/09/2012 51571.31 50503.33 1067.98 2.07
2010-11 15/09/2011 44685.87 43985.21 700.67 1.57
2009-10 15/09/2010 38512.84 38164.65 348.19 0.90
2008-09 15/09/2009 19691.57 19587.57 104.01 0.53
Source: Note of Directorate of Sugar, 2014, p.2-3

CHALLENGES FOR SUGAR INDUSTRY

Sugar is an agro based industry so the prices always fluctuate with monsoon.
The low yield of sugarcane, short crushing season, unsatisfactory location of
industry in Uttar Pradesh and Bihar and inadequate supply of cane create problems
for sugar mills having low milling efficiency. Low Recovery of sugar from sugarcane
 6

also poses a problem for sugar industry. Further Indian sugar mills do not have
sugar plantations of their own and hence do not have control over quantity and
quality of sugarcane supplied by various cane growers. Another problem of sugar
industry is that the by-products of sugar mills are not fully utilized like molasses and
bagasse. Levy sugar obligations causes huge financial burden on mills under which
mills are bound to sell sugar for distribution under public distribution system at price
determined by the Government which is way below the cost of production7.
Arbitrary fixation of cane prices by the State Governments above the Fair
Remunerative Price (FRP) fixed by the Centre has been adversely affecting the
sugar mills. Due to all these reasons 189 mills were out of operation in 2013-14
sugar season while 166 mills were not operating in 2012-138.

GOVERNMENT INITIATIVES FOR THE REVIVAL

The Sugarcane (Control) Order 1966 stipulates payment of cane price within
14 days of supply, failing which interest at the rate of 15 per cent per annum on
amount due for the delayed period beyond 14 days is payable. The powers for
enforcing this provision are vested with the State Governments/Union Territories
Administrations. Further the Central Government advises the State Governments/
Union Territories from time to time to ensure timely payment of cane dues to the
farmers and to take action against the defaulting sugar mills9.

In order to facilitate clearance of cane price arrears of previous sugar seasons

and timely settlement of cane price of current sugar season to sugarcane farmers, the
Central Government on 3 January 2014 had notified a Scheme for Extending Financial
Assistance to Sugar Undertakings (SEFASU-2014), envisaging interest free loans
worth Rs. 6600 crores by bank as additional working capital to sugar mills. Under the
Scheme all loans were to be sanctioned by 30 June 2014 and disbursed by 30
September 2014. Out of sanctioned loan amount, loan amounting to Rs. 6420.09

7
Indian Journal of Research, 'Problems of Indian Sugar Industry' by Dr. Venkateswara Rao, January 2014,
pp.126-127
8
Lok Sabha Unstarred Question no.3856 dated 16.12.2014.
9
Lok Sabha Unstarred Question no.429 dated 25.11.2014
 7

crores have been disbursed upto 30 September 2014. The beneficiaries sugar mills
under the Scheme had time upto 31December 2014 to utilize the loan for cane
payment arrears10.

An additional grant of interest-free loans of Rs. 4,400 crore to factories for

settlement of cane dues was announced in June 2014. To encourage sugar factories
to export raw sugar, in view of high sugar inventories, a scheme was notified in
February 2014 which allows incentives for marketing and promotion services for raw
sugar production targeted for export markets for 4 million tonnes during the 2013-14
and the 2014-15 sugar seasons from Sugar Development Fund (SDF). This export
incentive has been extended till September 2014. An increased provision for blending
of a cane by-product viz. ethanol with petrol from 5 per cent to 10 per cent has also
been made. These measures have been announced with a view to raise demand for
sugar and sugar products and to increase the liquidity of the sugar mills so that they
can clear the cane dues11.

DE-REGULATION OF SUGAR SECTOR

The Central Government considered the recommendations of
Dr. C. Rangarajan Committee on de-regulation of sugar sector and decided to do
away with levy obligation on sugar mills for sugar produced after September 2012 and
dispense with the regulated release mechanism on open market sale of sugar. The
de-regulation of the sugar sector is likely to improve the financial health of the sugar
mills, increase the cash flow, reduce their inventory cost and also result in timely and
better payment of cane price to sugarcane farmers in the country. The
recommendations of the Committee relating to Cane Area Reservation, Minimum
Distance Criteria and adoption of the Cane Price Formula have been left to the State
Governments for adoption and implementation, as considered appropriate by them 12.
The implementation status of the recommendations of the Committee is given at
Annexure-I.

10
PIB Press Release, Ministry of Consumer Affairs, Food and Public Distribution, dated 9.12.2014
11
www.cacpdacnet.nic.in, Price Policy for Sugarcane, 2015-16, p.5
12
op.cit. Note of Directorate of Sugar, 2014, p.3
 8

CURRENT SCENARIO (SUGAR SEASON 2014-15)

The sugar season 2014-15 has started from October 2014 with a carryover
stock of 75 lakh tons. The production in new season is estimated to be around
250-255 lakh tons. Thus there will be about 330 lakh tons of sugar available as
against consumption requirement of 245 lakh tons. The cane price arrears of about
Rs.5900 crores of 2013-14 still remain unpaid. Sugar prices are ruling around Rs.2650
per quintal much below the cost of production. Meanwhile The Central Government
has increased the FRP by Rs.10 per quintal leading it to Rs.220 per quintal for 2014-
15.

In Karnataka Hon'ble High Court has upheld the notification of the State
Government notifying cane price at Rs.2500 per ton for 2013-14. The mills have only
paid FRP fixed by the Centre at Rs.210 per quintal. The Uttar Pradesh Government
has decided to maintain previous years State Advised Price of Rs.280 per quintal for
2014-15 season but farmers in Uttar Pradesh are demanding cane price at Rs.350 per
quintal while in Maharashtra farmers are demanding Rs.2700 per ton in current sugar
season13.

The 2014-15 sugar season has started with a lot of uncertainities, as to whether
the mills would be able to begin operation due to their grave financial constraints and
due to cane pricing policy implemented by State Governments. Mills in all States
including in Uttar Pradesh, Karnataka and Maharashtra are facing issues relating to
cane pricing and payment to the cane farmers14.

CONCLUSION
In order to ensure sustainable good health of the Sector, a revenue sharing
formula should be evolved between the sugar mills and the cane farmers in the ratio of
their relative cost as per the recommendation of the Rangarajan Committee. As per
Committee recommendations the ideal value-sharing is 70 per cent for cane growers
and 30 per cent for mills including revenue from sugar and its by-products. Few States

13
National Federation of Cooperative Sugar Factories Limited, Cooperative Sugar, November,2014, p.3
14
op.cit. Indian Sugar: The Complete Sugar Journal, , November 2014, p.6
 9

like Maharashtra and Karnataka have already constituted Sugar Control Board to
implement the revenue sharing formula. For successful implementation, cane growers
are to be guaranteed FRP payments, irrespective of the sugar market behaviour. In
case the revenue in a particular season warrants higher payments to growers, they
should be entitled to a second payment15.

15
Ibid, p.41-42
 Annexure-I

Implementation of Recommendations of Dr. Rangarajan Committee

Issues Gist of Recommendations Action Taken

Cane Area Over a period of time States should encourage The recommendation has been
Reservation: development of such market-based long-term referred to the concerned State
contractual arrangements and phase out cane Governments for adoption and
reservation area and bonding. In the interim the implementation as considered
current system may continue. appropriate by them.

Minimum It is not in the interest of development of

Distance sugarcane farmers or the sugar sector and may
Criteria: be dispensed with as and when a state does -do-
away with cane reservation area and bonding.

Sugarcane Based on an analysis of the data available for

Price : the by-products (molasses and bagasse /
Revenue cogeneration) the revenue-sharing ratio has -do-
Sharing been estimated to amount to roughly 75 per cent
of the ex-mill sugar price alone.

Levy Sugar Levy sugar may be dispensed with. The states Central Government has
which want to provide sugar under PDS may abolished levy on sugar produce
st
henceforth procure it from the market directly after 1 October 2012.
according to their requirement and may also fix Procurement for PDS operation is
the issue price. However since currently there is being made from the open market
an implicit cross-subsidy on account of the levy and the Central Government is
some level of Central support to help states meet giving a fixed subsidy @ Rs.
the cost to be incurred on this account may be 18.50 per k.g.to make sugar
provided for a transitory period. available at Retail Issue price of
Rs. 13.50 per k.g.

Regulated This mechanism is not serving any useful Regulated Release Mechanism
Release purpose and may be dispensed with. for open market sale of sugar has
Mechanism been dispensed with.

Trade Policy As per the committee Trade Policies on sugar No export duty on sugar. Import
should be stable. Appropriate tariff instruments duty stands at 15 per cent.
like a moderate export duty not exceeding 5 per
cent ordinarily as opposed to quantitative
restrictions should be used to meet domestic
requirements of sugar in an economically
efficient manner.

By-products There should be no quantitative or movement In order to harness the full socio-
restrictions on by products like molasses and economic potential of the sugar
ethanol. The prices of the by-products should be sector State Governments have
market-determined with no earmarked end-use to take appropriate step to
allocations. There should be no regulatory enhance the productivity of
hurdles preventing sugar mills from selling their sugarcane and the recovery of
surplus power to any consumer. sugar. In addition the effective
utilisation of its by-products i.e.
bagasse molasses and press-
cakes are necessary to make the
industry globally competitive.
The State Governments have
been requested to reconsider the
regulatory controls on movement
of molasses which can be used
for producing ethanol.

Source: India. M/o Consumer Affairs & Food and Public Distribution, Note of Directorate of Sugar, 2014, pp.10-11