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T HTEH E NEENREGRYG Y ETX ITCREA C T I V E S G L O B A L P R A C T I C E
THE BOTTOM LINE
Access to Clean Cooking and Electricity: Righting the Policy
ESMAP’s Regulatory Indicators
for Sustainable Energy (RISE; Balance in Sub-Saharan Africa and Fragile Settings
ESMAP 2020a) capture the status
of national policy and regulatory
frameworks for sustainable energy, What is the status of global progress toward universal
assessing support for access access to electricity and clean cooking solutions? Box 1. RISE’s traffic-light rating system to score the
to electricity, access to clean policy environment
In 2019, 759 million of the world’s people still lacked
cooking fuels and technologies,
energy efficiency, and renewable access to electricity; the figure for access to clean • Green zone countries have scores between 67 and 100. Most
elements of a strong policy framework for sustainable energy
energy. This Live Wire analyzes cooking was 2.6 billion are in place.
data from the 2020 edition of RISE
and presents the trends in policy
Goal 7.1 of the Sustainable Development Goals (SDGs) adopted by • Yellow zone countries score between 34 and 66. Significant
opportunities remain to strengthen the policy framework.
the United Nations in 2015 calls for universal access to electricity and
on access to clean cooking and
electricity, with a focus on Sub-
to clean cooking fuels and technologies by 2030. Electricity access • Red zone countries have scores below 33. Few or no elements
of a supportive policy framework have been enacted.
has progressed farther and faster than access to clean cooking,
Saharan Africa and the countries
but even here the momentum has stalled in recent years. In 2019,
within the region affected by
759 million of the world’s people still lacked access to electric power.
fragility, conflict, and violence. The
The access deficit is concentrated in Sub-Saharan Africa, where in rural areas, as well as to improve electricity networks in dense
imbalance in policy effort on the
570 million people were still without access to electricity. Nearly city environments, has dwarfed investment in cooking programs
two forms of access is explored.
half of the unserved Africans lived in countries affected by fragility, (ESMAP 2020b).
conflict, and violence (FCV). ESMAP’s Regulatory Indicators for Sustainable Energy (ESMAP
Sharmila Bellur is a
The picture for clean cooking is worse. In 2019, 2.6 billion 2020a) capture the status of national policy and regulatory frame-
consultant in sustainable
energy at the Energy Sector people—a third of the earth’s people—lacked access to clean works for sustainable energy, assessing support for access to
Management Assistance cooking fuels and technologies. In Sub-Saharan Africa, the share is electricity, access to clean cooking fuels and technologies, energy
Program (ESMAP) at the much higher: 84%, or 894 million people. About half of them live in efficiency, and renewable energy. This Live Wire analyzes data from
World Bank. FCV countries. the 2020 edition of RISE and presents the trends in policy on access
Paul Mathew is a Clean cooking lags electrification in almost every country (IEA to electricity and clean cooking. The RISE rating system is summa-
consultant at ESMAP. et al. 2021), and policies to promote access to electricity are much rized in box 1. Of the world’s countries, 54 had a significant deficit in
stronger and better funded than those to promote access to clean access to electricity in 2019; 55 had a significant deficit in access to
cooking (ESMAP 2020a). In 2019, USD 12.87 billion was spent to fund clean cooking. Yet the average country score for policy performance
electrification, compared with USD 133.5 million for clean cooking on the two types of access showed a marked disparity: 37 for
Juliette Besnard is an
(SE4All 2021). The scale of capital deployed to extend electrical grids policies on clean cooking; 53 on electricity (figure 1).
energy specialist at ESMAP.
2 ACCESS TO CLEAN COOKING AND ELECTRICITY
Figure 1. RISE scores: Electricity access v. clean cooking, 2010–19 Figure 2. Indexed growth of RISE scores: Electricity access v.
clean cooking, 2010–19
RISE zones shown in pale green, yellow, and red horizontal bands
100 400
cooking pillar average (2010=100)
90
RISE electricity access and clean
RISE electricity access and clean
Electricity access Electricity access
cooking pillar average (0–100)
Clean cooking 350 Clean cooking
80
2.6 billion people— 70
300
a third of the earth’s 60
50 250
people—lack access to 40
200
clean cooking fuels and 30
20
technologies. 10
150
0 100
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019
Source: ESMAP 2020a. Source: ESMAP 2020a.
In short, policies on clean cooking have lagged those on elec- overall than those for clean cooking. By 2019 more than a quarter
tricity access around the world. Policy progress on electrification is of the electricity-access-deficit countries had mature policy struc-
fueled by integrated approaches based on data-driven, least-cost tures—among them Bangladesh, South Africa, and Tanzania.
planning. Meanwhile, the policy apparatus for clean cooking has few Those countries lacking universal access to clean cooking
monetary and fiscal initiatives to spur sector growth. The dearth of (55 countries) and electricity (54 countries) reveal scant correlation
funding is compounded by the many cross-sectoral aspects of clean between policy preparedness for clean cooking and for electrification
cooking policy—energy, health, environment, climate, and gender. (figure 3). Perhaps electricity access has remained a priority across
Without a champion and lacking intersectoral coordination, clean nations because lack of access is seen worldwide to slow economic
cooking has often been unable to gain traction. development, endanger public health and safety, and hold back
Yet since 2010 the clean cooking frameworks have grown faster social development, whereas access to clean cooking is not viewed
than those for electrification, albeit from a much lower base. Average with the same sense of urgency. It may be that, to expand, access
RISE scores for clean cooking in 2019 were 3.5 times those recorded to clean cooking will require stronger political commitment, longer-
in 2010 (figure 2). In 2019 only 15 percent of the countries with term planning, more private financing, and suitable incentives
access deficits had advanced policy frameworks. Those countries, (IEA et al. 2021).
which include Ethiopia, India, Indonesia, and Kenya, represent more In 13 of the 54 electricity-access-deficit countries, policy making
than half the world’s unserved population. Still, between 2010 to for clean cooking has caught up to or overtaken that for electricity
2019 the number of people lacking access to clean cooking fuels access, according to the RISE 2020 results (figure 4). Of these, eight
and technologies dropped by just 9 percent—from 3.0 billion to are in Sub-Saharan Africa.
2.6 billion. Policy frameworks for electricity access have more than Planning that incorporates both electrification and clean
doubled their scores since 2010, despite growing at a slower rate cooking priorities can help mainstream solutions and avoid large
3 ACCESS TO CLEAN COOKING AND ELECTRICITY
discrepancies in progress toward the two access pillars. When Figure 3. Correlation between RISE scores at the country level:
cooking solutions are integrated into large development investments Electricity access and clean cooking, 2019
(urban and rural) and broad energy policy, clean cooking diffuses at a
more rapid rate, moving the needle on universal access. 100
RISE electricity access score, 2019
90
80
When cooking solutions What is the status of access policy in Sub-Saharan 70 R² = 0.3592
are integrated into large Africa? 60
50
development investments Policy performance across the continent is uneven— 40
(urban and rural) and but good performers show a path forward 30
20
broad energy policy, clean
Sub-Saharan Africa contains 35 of the world’s access-deficit 10
cooking diffuses at a more countries. With a regional average score of 35 on the RISE clean 0
0 20 40 60 80 100
rapid rate, moving the cooking index, the region has the lowest regional average in the
RISE electricity access score, 2019
needle on universal access. world. One in three of the region’s countries are in the RISE red
Source: ESMAP 2020a.
Figure 4. RISE scores: Electricity access vs. clean cooking, 2019
Countries where policy
Countries where policy making Countries where policy making making for clean cooking
Electricity access
for electricity access outperforms for electricity access and for outperforms that for
Clean cooking
that for clean cooking clean cooking are on par electricity access
100
90
80
70
RISE pillar score 2019
60
50
40
30
20
10
0
es
ola
ea
n
ea
e
ar
ua
u
o
n
s
l
an
i
p.
frica
ala
e
ia
in
ep.
ia
.
esh
ria
o
ique
.
eria
as
nda
we
on
i
wi
rea
d
iopia
bia
alia
na
nda
er
n
ya
al
nia
r
PDR
ia
India
Mali
a
ega
und
Hait
Rep
Rep
sca
land
goli
eon
Ivoir
ista
uat
Fas
ista
Tog
Cha
uda
zan
bod
Nep
nes
Ben
. Re
nm
Nig
dur
ippin
Ken
Mala
Guin
Guin
arag
Sud
Gha
Libe
ero
tem
Ang
Zam
rita
bab
an R
Erit
Som
glad
Rwa
Uga
Nig
Sen
aga
amb
Bur
th A
Van
Lao
Mon
Eth
han
Pak
ra L
th S
en,
go,
Mya
Tan
Indo
n Is
kina
e d'
Cam
Hon
Dem
Cam
Mau
Zim
Nic
Gua
Phil
Afric
ew
Ban
Mad
Con
Yem
Sou
Afg
Sier
Moz
mo
Sou
Côt
Bur
ua N
go,
Solo
tral
Con
Pap
Cen
Source: ESMAP 2020a.
4 ACCESS TO CLEAN COOKING AND ELECTRICITY
zone, and many have yet to adopt policies on clean cooking, such as momentum in these countries, these policies are bolstering institu-
planning documents and policies to raise awareness, collect data, tional capacity by assigning clean cooking responsibilities to govern-
and strengthen institutional capacity. The 16 Sub-Saharan countries ment agencies. In addition, the policies provide financial incentives to
in the RISE yellow zone have moderately well developed policy suppliers and financing mechanisms for purchasers of clean cooking
frameworks. Having established the necessary policies, countries in solutions. Awareness-raising and last-mile distribution strategies are
For progress on clean the yellow zone turn to last-mile strategies and monetary policies to also gaining popularity among the countries that are improving their
cooking policy since 2010, boost uptake, deploying financing mechanisms for consumers and scores on the RISE index.
financial incentives to suppliers. Incremental policy additions in the Of the three subregions of Sub-Saharan Africa with substantial
look to Kenya, Mali, Nigeria,
region’s three green zone countries (Ethiopia, Kenya, and Uganda) coverage in RISE (East Africa, West Africa, and Central Africa2) the
Rwanda, and Tanzania; include efficient clean cooking solutions, emissions standards, and best performer on the RISE clean cooking index is East Africa, with
since 2017 the latter three infrastructure to test those standards. an average score of 48; West Africa follows (37), trailed by Central
have implemented policies For the 2020 RISE index on electricity access, Sub-Saharan Africa (21).
African countries had an average score of 51, trailing other develop- East Africa, the regional exemplar, displays the entire spectrum
to expand access.
ing regions such as East Asia and the Pacific (55), Latin America and of clean cooking practice. At one end, it is home to the top regional
the Caribbean (60), and South Asia (62).1 performers (Ethiopia, Kenya, and Uganda), but it includes laggards
More than a quarter of the Sub-Saharan African countries have Burundi, Somalia, and South Sudan, which have yet to institute
remained in the red zone, displaying few policies on electricity any clean cooking policies. In the middle are Malawi, Rwanda, and
access. About half are in the yellow zone, having passed some Tanzania, which have meaningful clean cooking policies on planning,
regulations to improve public access to electricity. This group tends awareness, last-mile distribution, and financial incentives. But they
to perform well on frameworks for grid electrification, consumer have yet to establish standards and labeling.
affordability of electricity, and utility transparency and monitoring. Of West African countries, except for Guinea, have all launched
the remaining quarter of Sub-Saharan countries that have risen to some clean cooking policies. Although the region has no countries in
the green zone, Ethiopia and South Africa have the most advanced RISE’s green zone, most West African countries have plans to scale
policies on electricity access; these are focused on improving the up access to clean cooking (including Burkina Faso, Sierra Leone, and
scope of access for all segments of society using decentralized Senegal, all in the RISE red zone) and some institutional capacity to
energy sources and promoting consumer affordability. support the clean cooking agenda. Other policies commonly found in
Since 2010, Nigeria and Rwanda have made the most progress the region are awareness campaigns, financing mechanisms for end
on national regulations on electricity access, apparently because of users, and financial incentives for suppliers.
a range of policy improvements in planning, consumer affordability, In Central Africa, plans to scale up access to clean cooking and
utility transparency and monitoring, and better frameworks for mini- engage in awareness strategies to drive adoption are among the
grids and standalone systems. Since 2017, Ethiopia and Kenya have emerging policy actions. But fragility and conflict affect countries
made notable improvements in their national frameworks to boost throughout Central Africa (except for Angola), deterring policies and
electricity access by working on affordable access, strong planning, regulations from taking root.
and decentralized energy policies (figure 5).
For progress on clean cooking policy since 2010, look to Kenya, 2. Of the countries in Southern Africa, only South Africa is covered in RISE. East Africa comprises
Mali, Nigeria, Rwanda, and Tanzania; since 2017 the latter three Burundi, Eritrea, Ethiopia, Kenya, Madagascar, Malawi, Mozambique, Rwanda, Somalia, South
Sudan, Tanzania, Uganda, Zambia, and Zimbabwe; for the purpose of this analysis, South Africa
have implemented policies to expand access (figure 5). Now gaining
has been grouped with East Africa. West Africa includes Benin, Burkina Faso, Côte d’Ivoire,
Ghana, Guinea, Liberia, Mali, Mauritania, Niger, Nigeria, Senegal, Sierra Leone, and Togo. Central
1. The Middle East and North Africa is not covered by the 2020 RISE index because only one Africa includes Angola, Cameroon, Central African Republic, Chad, Democratic Republic of Con-
country in the region (Yemen) participates in RISE. go, and Congo Republic; for the purpose of this analysis, Sudan is grouped with Central Africa.
5 ACCESS TO CLEAN COOKING AND ELECTRICITY
Figure 5. Annual change in RISE scores on access to clean cooking and electricity indices, 2017–19
30
Change in RISE Electricity Access score (2017–19)
Change in RISE Clean Cooking score (2017–19)
25
Change in score between 2017–19
In 2010 East Africa had
the most advanced policy 20
frameworks on electricity
15
access in Sub-Saharan
Africa. But West Africa 10
has since overtaken
it, becoming the most 5
advanced subregion, with
0
an average score of 54 in
ola
in
o
i
on
blic
d
p.
.
e
rea
iopia
na
ea
ya
ria
r
wi
Mali
nia
ique
er
eria
nda
l
e
alia
frica
n
an
ia
o
nda
bia
we
und
ega
Rep
sca
Ivoir
eon
Fas
Cha
uda
Tog
zan
Ben
. Re
Nig
Ken
Mala
Guin
Gha
Sud
ero
Libe
Ang
2019.
rita
Zam
bab
Erit
Som
epu
Rwa
Uga
Nig
Sen
aga
amb
Bur
th A
Eth
ra L
th S
go,
Tan
kina
e d'
Dem
Cam
Mau
Zim
an R
Mad
Con
Sou
Sier
Moz
Sou
Côt
Bur
go,
Afric
Con
tral
Cen
Source: ESMAP 2020a.
In 2010 East Africa also had the most advanced policy frame- countries in the subregion score in the yellow zone, with moderate
works on electricity access in Sub-Saharan Africa. But West Africa regulations in place. The remainder have entered the green zone.
has since overtaken it, becoming the most advanced subregion, with Ethiopia, Kenya, and Uganda lead the region with strong policies
an average score of 54 in 2019. East Africa (53) is close on its heels, that minimize access deficits, including expanded plans for national
but Central Africa (41) lags, with much weaker policies. electrification, decentralized energy sources, and improved con-
Within West Africa, most of the region’s countries are in the yel- sumer affordability.
low zone, having moderately good policies and structures in place for In Central Africa, more than half of the countries remain in
electricity access. The remaining countries are split evenly between RISE’s red zone because of weak progress in their electricity access
the red and green zones, with Benin, Nigeria, and Togo leading the policies, with indicators such as utility transparency and monitoring
region. Their advanced regulatory moves on electricity access are dragging down the scores. About a third of the Central African
improving consumer affordability and frameworks for mini-grids and countries lie in the yellow zone; they have moderately developed
grid electrification. regulations. Cameroon is the only country in the green zone. With
A fifth of the countries in East Africa remain in the red zone, with its well-defined electricity access public frameworks, Cameroon has
scanty frameworks for electricity access. About 40 percent of the made significant improvements in consumer affordability.
6 ACCESS TO CLEAN COOKING AND ELECTRICITY
Figure 6. RISE clean cooking score v. GDP per capita, Sub-Saharan Figure 7. RISE electricity access score v. GDP per capita, Sub-
Africa, 2019 Saharan Africa, 2019
RISE zones shown in pale green, yellow, and red horizontal bands RISE zones shown in pale green, yellow, and red horizontal bands
Institutional and 100 100
RISE electricity access score, 2019
90 90
social instability,
RISE clean cooking score, 2019
80 80
forced displacement, 70 70
60 60
extreme poverty, and
50 50
poor governance are 40 40
impediments to the 30 30
20 20
development and 10 10
implementation of policies. 0 0
0 1,000 2,000 3,000 4,000 5,000 6,000 7,000 0 1,000 2,000 3,000 4,000 5,000 6,000 7,000
GDP per capita, 2019 GDP per capita, 2019
Source: ESMAP 2020a. Source: ESMAP 2020a.
In RISE 2020, 21 of the 35 access-deficit countries in Sub-Saharan strides on consumer affordability, utility transparency and monitoring,
Africa were low-income countries (and 13 of the 21 fell into RISE’s and frameworks for standalone systems. Of the lower-middle-income
red zone). Only 1 of the 35 was upper-middle-income (South Africa); countries, around half were in the yellow zone, while five were in
the remaining 13 were in the lower-middle-income group. Viewed the green zone and just two were red. Sub-Saharan Africa’s only
through the lens of per capita income and bundled by income group, upper-middle-income country, South Africa, is in the green zone, with
clear trends emerge (figure 6). Clean cooking policies in low-income strong policies in place.
Sub-Saharan African countries are at a nascent stage, with an average
score of 30. Just seven of the thirty-five low-income countries are in What do sustainable energy policies look like in
the yellow zone; two, Ethiopia and Uganda, are in the green zone.
the fragile and conflict-affected countries of
The lower-middle-income countries as a group have moderately
well-developed clean cooking policy frameworks. The average clean
Sub-Saharan Africa?
cooking score of the group is 43. Nine of the thirteen lower-middle- FCV countries are among the poorest performers on
income countries are in the yellow zone, two are in the red zone, the RISE electricity access and clean cooking indices
and one (Kenya) is in the green. South Africa, the only upper-middle-
income country, has a score of 53 on the RISE clean cooking index. Institutional and social instability, forced displacement, extreme pov-
For electricity access, a third of low-income countries fell into erty, and poor governance are impediments to the development and
the red zone, with weak and outdated electricity policies in place, implementation of policies. The COVID-19 pandemic has worsened
and most of the rest were in the yellow zone (figure 7). Only three the development barriers, very probably reversing progress made
scored in the green zone, having strong policies in place to ensure over the past decade.3
consistent and sustained access to electricity for their populations.
3. The 2022 edition of RISE will provide extensive analysis of the impact of COVID-19 on clean
Those three—Ethiopia, Rwanda, and Uganda—have made enormous cooking and electricity policy making.
7 ACCESS TO CLEAN COOKING AND ELECTRICITY
In 2010, the electricity access frameworks in Sub-Saharan Africa’s design, testing, production, marketing, and use of clean cookstoves
22 FCV countries had an average score of 23, with few policies on and fuels.
electricity access. By 2019 the FCV countries had improved, with Niger and Nigeria, also low-income countries, rose into the
an average score of 41, whereas non-FCV countries maintained yellow zone on clean cooking policy making while coping with
a 60+ average, highlighting the enduring on-the-ground costs of fragility, conflict, and violence.
As a group, FCV countries conflict and violence. Grid electrification policies and planning lag in Progress in fragile and low-income settings is often galvanized
in Sub-Saharan Africa FCV countries, no doubt because of the overwhelming challenges by international donors that support financial incentives for clean
involved in setting and implementing national targets. But as seen in cooking providers and users.
have been the poorest
Cameroon and Nigeria, policies on consumer affordability, mini- Ethiopia, Rwanda, and Uganda have made vast improvements in
performers on the RISE grids, and standalone systems are gaining momentum. This may their policies and regulations on electricity access, in comparison to
clean cooking index, with be because, across fragile countries, it may be easier to achieve their Sub-Saharan African and low-income peers. They have focused
an average score of 25 multiple, small-scale solutions that are suited to the locales. chiefly on rolling out strong and nationally approved electrification
As a group, FCV countries in Sub-Saharan Africa have been the plans that strengthen decentralized energy sources and consumer
in 2019. Still, this is an
poorest performers on the RISE clean cooking index, with an average affordability. This welcome trend proves that countries can advance
improvement over the 2010 score of 25 in 2019. Still, this is an improvement over the 2010 the universal access agenda when they have buy-in from local and
scores, when the average scores, when the average was 8. Because many of these countries national stakeholders.
was 8. benefit from the services of external aid agencies, and because Cameroon and Nigeria have both improved their electricity
clean cooking is emerging as a policy priority, many FCV countries access frameworks, so they remain in the green zone despite their
in Sub-Saharan Africa now track data on access, have strategies to FCV status.
raise awareness, and have plans to increase uptake. Some countries,
including Cameroon, Mali, Niger, and Zimbabwe, have also built their What areas of access policy need bolstering in Sub-
institutional capacity. Conspicuously lacking among the region’s
Saharan Africa?
FCV countries are last-mile strategies, labeling mechanisms, and
standards for emissions and efficiency for clean cooking fuels and The answer varies by level of policy development
technologies. and type of access
Clean cooking must become a national priority, one designed to
Do some countries perform well despite their fragility, lower market entry costs, raise consumer awareness, eliminate
low income, and remote rural populations? financing gaps for producers, encourage innovation, and develop
Some countries do indeed perform well despite infrastructure for fuel production and distribution.
• Green zone countries should resist policy rollbacks in the face of
these obstacles
COVID-19, as seen in Kenya (Clean Cooking Alliance 2021), and
Having developed robust policy frameworks, Ethiopia and Uganda, advance a policy framework that embraces universal access to
despite being low-income countries, climbed into the green zone on clean cooking. They should focus on labeling schemes, policies
the RISE clean cooking index. Their policy-making progress was bol- that target women in the clean cooking supply chain, and uptake
stered by data on clean cooking, which yielded numerous benefits. In of clean cooking solutions in Tier 3 and above of the Multi-Tier
addition to informing government policies, the data enabled targeting Framework.4
and awareness raising; opened access to finance; built the technical
capacity of producers and distributors; and supported innovation in
4. The Multi-Tier Framework measures household access to cooking solutions, considering six
technical and contextual attributes, ranging from Tier 0 (no access) to Tier 5 (full access).
8 ACCESS TO CLEAN COOKING AND ELECTRICITY
MAKE FURTHER • Countries in the yellow zone should target beneficiaries, Countries in the yellow zone should focus on maintaining and
CONNECTIONS strengthen last-mile distribution, set standards and labeling for improving their policy frameworks to sustain the pace of electrifica-
Live Wire 2014/9. “Tracking Access to clean cooking products, and adopt financing mechanisms for tion and mitigate the adverse impacts of the pandemic on national
Electricity,” by Sudeshna Ghosh Banerjee and utilities, mini-grids, and off-grid solar systems.
Elisa Portale.
low-income end users. In low-income Malawi, clean cooking ini-
tiatives have gained considerable momentum. The national plan
Live Wire 2014/16. “Capturing the Multi-
Dimensionality of Energy Access,” by Mikul for universal access includes a last-mile distribution network, an References
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