Mission for Cotton Productivity

The Union Cabinet has approved the Mission for Cotton Productivity with an outlay of ₹5,659 crore for 2026–31. The mission aims to increase cotton lint productivity from 441 kg/hectare (TE 2025–26) to 755 kg/hectare by 2031.

While the target is ambitious, experts question whether it can be achieved amid declining productivity, technological stagnation, weak innovation incentives, and regulatory constraints.

India's Bt Cotton Success Story

Beginning of the Biotechnology Revolution

A major turning point in India's cotton sector came in 2002, when the Government approved the commercial cultivation of Bt Cotton after clearance by the Genetic Engineering Appraisal Committee (GEAC). This marked India's entry into the agricultural biotechnology era.

The introduction of Bollgard (Cry1Ac gene) and later Bollgard II (stacked genes) provided effective protection against bollworm infestation, significantly improving productivity and reducing crop losses.

Impact of Bt Cotton (2002–2014)

The adoption of Bt technology transformed India's cotton economy. Cotton production increased from 13.6 million bales in 2002–03 to 39.8 million bales in 2013–14.

During the same period, the area under cotton cultivation expanded by 56%, rising from 7.6 million hectares to 11.9 million hectares, while productivity increased by 88%, from 302 kg/ha to 566 kg/ha.

As a result, India emerged as the world's largest cotton producer and the second-largest exporter, demonstrating the transformative power of technological innovation in agriculture.

Policy Reversal and Innovation Slowdown

Non-Commercialisation of Advanced Technologies

Following the success of Bollgard II, newer technologies such as Bollgard II with Roundup Ready Flex (RRF) and Bollgard III, which included three stacked genes and herbicide tolerance, were developed by Mahyco-Monsanto Biotech (MMB) India.

However, these technologies were never commercialised in India, leading to a technological stagnation in the cotton sector.

Impact of Government Price Controls

Government interventions in seed pricing substantially reduced returns on private innovation.

In 2006, Andhra Pradesh capped cotton seed prices at ₹750 per packet, a model subsequently adopted by Maharashtra and Gujarat. Later, the Cotton Seed Price Control Order, 2015, reduced trait fees by 74%. Further reductions followed in 2018, and by 2020, trait fees were completely abolished.

These measures weakened incentives for biotechnology companies to invest in research and development, leading many private firms to withdraw advanced technologies from the Indian market.

Global Competitors Continued to Progress

Technological Advancement in Other Countries

While India's innovation ecosystem slowed down, major cotton-producing countries continued investing in advanced biotechnology, precision farming, and modern agronomic practices.

According to the International Cotton Advisory Committee (ICAC), cotton productivity during TE 2025–26 stood at:

• Australia: 2,340 kg/ha

• China: 2,311 kg/ha

• Brazil: 1,943 kg/ha

• United States: 976 kg/ha

• India: 441 kg/ha

The enormous productivity gap reflects differences in technology adoption, research investments, regulatory frameworks, and innovation ecosystems.

Countries such as Brazil have successfully combined advanced seed technologies with efficient farming practices, despite relying significantly on rainfed cultivation.

India's Emerging Cotton Crisis

Declining Production Trends

India's cotton sector has entered a period of stagnation and decline.

Since 2014–15, cotton production has been falling by approximately 2% annually. If earlier growth trends had continued, India's cotton output could have reached 65.3 million bales by 2026.

However, actual production in 2025–26 is estimated at only 29 million bales, highlighting the severity of the slowdown.

From Exporter to Importer

India, once a major exporter of cotton, has now become a net importer, importing nearly 4 million bales of cotton.

This shift raises serious concerns regarding the competitiveness of India's textile industry, which depends heavily on reliable domestic cotton supplies.

The decline also threatens India's long-term objective of maintaining cotton self-sufficiency.

Mission for Cotton Productivity: An Assessment

An Ambitious but Challenging Goal

The Mission for Cotton Productivity seeks to increase productivity to 755 kg/hectare by 2031, a significant improvement over current levels.

However, several structural constraints could limit its success.

India currently lacks access to many cutting-edge biotechnology innovations available globally. There is an absence of next-generation genetically modified cotton varieties, while private-sector participation in innovation remains weak due to regulatory uncertainties and low commercial incentives.

Additionally, agricultural research and development continue to suffer from inadequate public investment.

Even if the mission achieves its target, India's productivity would still remain substantially below current levels in countries such as Australia, China, and Brazil.

The Innovation Policy Dilemma

Reviving Private Sector Innovation

One possible solution is to revive private-sector participation in biotechnology.

This would require reconsidering the Cotton Seed Price Control Order, strengthening intellectual property protections, and creating conditions that allow companies to recover their research investments.

A predictable and supportive regulatory framework could encourage firms to introduce advanced cotton technologies in India.

Strengthening Public Sector Research and Development

An alternative pathway involves expanding public-sector agricultural research.

The government could significantly increase funding for biotechnology research, develop indigenous cotton technologies, and strengthen agricultural institutions such as ICAR and extension services.

Greater investment in scientific innovation would reduce dependence on imported technologies while enhancing long-term productivity.

Way Forward

Promoting Technological Renewal

The future of India's cotton sector depends on embracing technological advancements, including modern biotechnology, precision agriculture, and improved seed varieties.

Farmers must gain access to globally competitive technologies that enhance productivity while reducing production risks.

Building a Balanced Innovation Ecosystem

India requires a balanced framework that encourages both private-sector innovation and public-sector research. Strong intellectual property rights, efficient regulatory mechanisms, and increased R&D investments are essential for sustaining long-term growth.

Strengthening Agricultural Extension Services

Scientific innovations must be complemented by effective extension services that educate farmers regarding best practices, water management, pest control, and efficient input use.

Bridging the gap between laboratories and farms remains crucial for achieving productivity gains.

Conclusion

The Mission for Cotton Productivity represents an important recognition of the challenges facing India's cotton sector. However, increasing productivity cannot be achieved solely through financial allocations or administrative measures.

The long-term revival of Indian cotton requires technological renewal, greater investment in biotechnology, stronger innovation incentives, and improved access to advanced seed technologies.