NITI Aayog: Diagnosis without the power to cure

Abhijeet SinghThe Planning Commission had one important advantage that NITI does not have: it could connect its recommendations to money.
India’s decision to scrap the Planning Commission in 2015 and replace it with NITI Aayog was not simply a change of name. The government argued that the Planning Commission had been designed for a very different economic system. Its control over plan funds gave it considerable influence over states, allowed it to push centrally designed schemes and put it in an unusual position between the Finance Ministry and the agencies that actually spent the money. By 2014, the economy had changed significantly. Private capital was far more important, states wanted more freedom to set their own priorities, and the Centre's role in directing investment had become less appropriate.
The government's stated idea was therefore fairly straightforward: move away from central allocation towards cooperative federalism, replace five-year planning with longer-term policy thinking, and make the new institution more of an adviser than an allocator of resources. The Cabinet resolution that created NITI, as well as the Prime Minister's remarks at the time, presented it as a think tank that would work with states rather than treating them as recipients of instructions from Delhi.
The problem became clearer once the new arrangement was in place.
The Planning Commission had one important advantage that NITI does not have: it could connect its recommendations to money. That gave it leverage over ministries and states. Once the Planning Commission was abolished, resource allocation moved elsewhere, mainly through the Finance Ministry and the Finance Commission. NITI's role became much narrower. It produces frameworks, indices, discussion papers and monitoring reports, brings Chief Ministers together through its Governing Council, and works through different verticals covering areas such as education, health, agriculture and infrastructure.
That looks like a cleaner division of responsibilities on paper. The difficulty is what happens after NITI identifies a problem. It can make a convincing case for change, but it usually has to leave the decision to the ministry, regulator or state government concerned. Its reports on higher education, for example, have repeatedly pointed to the poor fit between what students study in degrees such as BA, BCom and BSc and what employers are looking for. The diagnosis is not particularly controversial. But a report from NITI does not give it the power to change university curricula, and reforms at the UGC, AICTE or state university level still depend on those institutions deciding to act. NITI can point to the problem. It cannot make the system respond to it.
The way NITI is structured reinforces this. The Prime Minister chairs it, the Vice-Chairperson has Cabinet rank, its full-time members have Minister of State rank and the CEO is a Secretary-rank official. It also has ex-officio ministers and a Governing Council made up of Chief Ministers, which gives it considerable political visibility. But none of that gives NITI statutory powers or the ability to withhold money. It is an extra-constitutional body created through a Cabinet resolution, as the Planning Commission was. The crucial difference is that the Planning Commission had control over plan funds, while NITI does not. Its ability to influence policy therefore depends much more on whether the government wants to act on its recommendations and whether its analysis is good enough to persuade the people who do have the power to act.
This creates a gap between what NITI says it is supposed to do and what people may expect it to do. Its language is ambitious: cooperative and competitive federalism, bottom-up planning, evidence-based policy and Team India. Its actual output is mostly reports, rankings, strategy papers and sector reviews. Some of these have had a real effect. The Aspirational Districts Programme, for instance, gave district-level performance much greater visibility, while NITI's indices have pushed governments to pay attention to areas they might otherwise have ignored.
But producing a good diagnosis and getting institutions to act on it are two different things. If NITI says that undergraduate education needs to change, it is doing the job it was created to do. If the same problems keep appearing in its reports without much change in universities, regulators or ministries, it is reasonable to ask whether the institution has enough influence to do anything beyond identifying them. That is the central tension in NITI: it has the profile of a powerful policy institution, but most of the tools it has are the tools of an advisory one.
The revolving door at NITI is fairly straightforward. A lot of the people doing its analytical work are short-term consultants, Young Professionals and domain experts. Many come from the Big Four, MBB firms or other parts of government. They bring useful skills with them, particularly around data, newer analytical methods and private-sector ways of working. But many stay for only two or three years, put NITI on their CV and move on. The result is that people with experience keep coming in and out, without the institution necessarily building the same depth of permanent analytical expertise.
There is nothing unusual about a government institution hiring consultants. Governments everywhere do it, and NITI is not wrong to bring in people with specialised expertise. The question is what happens when this becomes such an important part of how an institution does its analytical work. NITI can become very good at putting together a report, a framework or a presentation, while finding it harder to retain people who have spent years working on the same problem and understand how to get something through the system when ministries or states push back.
There are also fairly obvious reasons why this arrangement persists. For the Centre, NITI provides a visible policy institution under the Prime Minister without bringing back the Planning Commission's power to allocate funds. For states, getting rid of discretionary plan grants removed one source of friction with the Centre, although Centrally Sponsored Schemes and other transfers still give the Union government considerable influence. Consulting firms get paid for the work, and the people working on NITI projects get a useful name on their CVs.
The cost to the public is harder to see. It is not necessarily that NITI's analysis is wrong. Some of it is quite good. The problem is that the same problems can appear in report after report without being solved, because the institution identifying them does not have the authority or the institutional capacity to keep pushing until something actually changes.
The government’s decision was not necessarily cynical. The Planning Commission had been created in 1950 for a very different economy, when the Centre played a much larger role in directing investment and the states had less room to shape their own priorities. Removing its power to allocate funds was therefore a deliberate move towards a more federal model, with a smaller role for the Centre in coordinating policy.
The problem was what came next. NITI Aayog was presented as an important institution at the centre of policymaking, but it was given very little power to make its recommendations stick. It can study a problem, bring states and ministries together and publish recommendations, but ultimately someone else has to act on them. That creates an awkward gap between how important NITI looks from the outside and what it can actually make happen.
This is not unique to India. Australia’s Productivity Commission and the Netherlands’ CPB are also advisory institutions, but they have built considerable influence through independence, transparent processes and a reputation for producing analysis that governments cannot easily dismiss. NITI Aayog has some of that analytical role, but it also operates much closer to the government. The result is an institution that can sometimes have considerable influence, but cannot reliably turn its analysis into action.
The problem is less about bad faith and more about what the institution is actually set up to do. NITI Aayog can raise questions and make recommendations, but it does not control what happens next. So naturally, its record looks mixed if we judge it by whether those questions ultimately lead to action. That is not entirely a failure of the institution. It is also a consequence of the structure that replaced the Planning Commission.






