Jammu & Kashmir: Strategic Direction and Future Infrastructure Roadmap

1. Executive Summary

Following significant administrative changes in 2019, Jammu & Kashmir (J&K) has embarked on an ambitious transformation agenda, underpinned by substantial central government support and investment. The strategic vision aims to reposition J&K as a modern, progressive, and economically vibrant region, fully integrated into India’s national development narrative, particularly the ‘Viksit Bharat @ 2047’ goal. This report details the multifaceted strategy encompassing infrastructure development, economic diversification, social upliftment, and governance reforms.

A cornerstone of the strategy is unprecedented investment in infrastructure, particularly transportation connectivity. Major projects like the Udhampur-Srinagar-Baramulla Rail Link (USBRL), including the iconic Chenab Bridge, all-weather tunnels such as Z-Morh (completed) and Zojila (under construction), and extensive highway upgrades (including the Delhi-Amritsar-Katra Expressway and Ring Roads for Jammu and Srinagar) aim to overcome geographical barriers, boost trade and tourism, and enhance strategic logistics. The power sector is also undergoing significant overhaul, focusing on harnessing J&K’s vast hydropower potential through projects like Kiru, Kwar, and Pakal Dul, alongside promoting solar energy and tackling chronic distribution losses via the Revamped Distribution Sector Scheme (RDSS) and smart metering. Digital infrastructure is being strengthened through BharatNet expansion and a surge in e-governance services, positioning J&K as a leader among Union Territories in online service delivery.

Economically, the focus is on moving beyond traditional reliance on specific sectors. The Holistic Agriculture Development Programme (HADP) seeks to modernize agriculture and allied sectors. Tourism, already witnessing record footfalls, is being promoted with new master plans, diversification into adventure and eco-tourism, and infrastructure upgrades. A concerted effort is underway to attract private and foreign investment through new industrial policies, the establishment of a Single Window Clearance System integrated with the national portal, and potential development of Special Economic Zones (SEZs).

Social development initiatives target improvements in education (NEP 2020 implementation, new institutions) and healthcare (universal coverage via PM-JAY SEHAT scheme, new AIIMS and medical colleges). Significant emphasis is placed on skill development and employment generation, particularly through self-employment schemes and the new Mission YUVA initiative, aiming to address unemployment challenges. Inclusive growth measures focus on empowering women, tribal communities, and other vulnerable sections.

Governance reforms prioritize transparency, accountability, and efficiency, driven by digitalization (e-tendering, online portals like BEAMS, JKPaySys, e-UNNAT) and strengthening local governance bodies. While the restoration of statehood is acknowledged as a public aspiration, the current roadmap operates within the Union Territory framework under central oversight.

The successful realization of this comprehensive vision hinges on overcoming significant challenges, including effective project execution (addressing land acquisition issues and delays), ensuring fiscal sustainability amidst high debt levels, translating investment policies into tangible ground-level activity, maintaining security and stability, and ensuring environmental considerations are integrated into large-scale development. The path forward presents substantial opportunities for socio-economic transformation, contingent on sustained commitment, effective implementation, and inclusive benefit-sharing.

2. Jammu & Kashmir’s Strategic Vision Towards 2047

The period following August 2019 has marked a pivotal juncture for Jammu & Kashmir, initiating a comprehensive strategic reorientation aimed at long-term development and integration. The government’s approach is articulated through various policy documents, budget speeches, and official statements, outlining a vision for a transformed J&K by 2047.

2.1 Government’s Transformative Agenda and Stated Objectives

The core objective articulated by the administration is the transformation of J&K into a “modern, progressive, and economically vibrant region”.¹ This involves moving decisively beyond what is officially described as over three and a half decades of turmoil towards a “new era of peace and prosperity”.¹ The 2025-26 Budget is explicitly framed not merely as a financial statement but as a “roadmap for a new and prosperous Jammu and Kashmir,” designed to reflect public aspirations and establish foundations for sustainable growth.¹

Central to this transformation is the stated aim to foster an environment conducive to political empowerment, meaningful employment, sustainable development, social inclusivity, and robust economic growth.¹ The government endeavors to “reclaim the prudence, sagacity and self-confidence” perceived as historical cornerstones of the region’s identity.¹ This narrative of renewal is further emphasized by the vision of transforming an “economy of scarcity” into one of surplus and replacing an “opaque system” with “transparent and corruption-free governance”.⁴ The consistent use of terminology emphasizing transformation, new beginnings, and overcoming past challenges across official communications ¹ underscores a deliberate effort to reshape the narrative surrounding J&K’s future. This framing serves to legitimize the significant policy shifts post-2019 and garner support for the extensive development agenda, positioning the current administration as the harbinger of progress after perceived periods of difficulty.

The strategic priorities underpinning this vision are multi-dimensional, encompassing inclusive growth benefiting all societal sections, responsible fiscal management (fiscal prudence), targeted investments in key sectors (infrastructure, agriculture, industry, health, education, digital governance), empowerment of youth and women, reduction of regional disparities within J&K, and the cultivation of a business-friendly environment to attract investment and spur innovation.¹

2.2 Alignment with ‘Viksit Bharat’ Goals

The development trajectory envisioned for Jammu & Kashmir is explicitly and consistently linked to the broader national ambition of ‘Viksit Bharat @ 2047’ (Developed India by 2047).¹ Official statements assert that J&K is expected to emerge as a leading region in development and play a “vital role” in achieving this national vision.¹ The Lieutenant Governor has publicly called upon civil society, youth, and industry stakeholders to actively pursue the twin national goals of achieving a $5 Trillion economy by 2026 and realizing Viksit Bharat by 2047.⁵

This deliberate integration of J&K’s development plans within the national ‘Viksit Bharat’ framework serves multiple strategic purposes. Post-2019, a primary objective has been the fuller political and economic integration of J&K with the rest of India.² By framing regional development as a contribution to a larger national project ¹, this linkage reinforces the message of integration and aligns regional priorities with national ones. This alignment is also instrumental in securing substantial central funding and political backing for J&K’s ambitious initiatives, positioning the region’s future firmly within the narrative of India’s overall growth story.

2.3 Governance Reforms: Transparency, Accountability, and Local Empowerment

A significant pillar of the transformation strategy is the comprehensive overhaul of governance mechanisms, with a strong emphasis on transparency, accountability, and leveraging technology. Financial management reforms include the implementation of online systems like the Budget Management Application (BEAMS) for budget allocation, JKPaySys for online billing, mandatory e-tendering for works, 100% physical verification and geo-tagging of projects (with pre- and post-execution photographs), and the shifting of treasuries to the e-Kuber portal of the RBI.⁴ The ‘Empowerment’ or ‘Jan-Bhagidhari’ portal has been established to provide public online access to details of all developmental works, aiming to enhance fiscal transparency.¹

E-governance is a major thrust, encapsulated in the ‘Digital J&K’ vision which aims for cashless, presence-less, and paperless public service delivery.⁷ This initiative has seen a dramatic increase in the number of online services available through the integrated e-UNNAT portal, rising from just 35 in 2019/2021 to over 1,100 by early 2025.⁸ This progress led to J&K ranking first among Union Territories in the National e-Governance Service Delivery Assessment (NeSDA) 2021 ¹² and topping national lists for the number of e-services offered.⁹ Integration with national platforms like Digi-Locker and the use of the Rapid Assessment System (RAS) for citizen feedback are also part of the digital ecosystem.⁸ Artificial Intelligence (AI) is also envisioned for enhancing public services.⁸

The implementation of the Jammu and Kashmir Public Services Guarantee Act (PSGA), 2011, has been reinforced with recent amendments focusing on e-services and the introduction of an automatic appeal mechanism for delays in service delivery, aiming to ensure timelines are met.⁷ Furthermore, J&K pioneered the District Good Governance Index (DGGI) to benchmark administrative performance at the district level.⁴ Citizen grievance redressal is facilitated through the online JKIGRAMS portal (integrated with the central CPIGRAMS) and the ‘LG’s Mulaqaat’ program for direct interaction.⁴

Strengthening grassroots democracy through the empowerment of Panchayati Raj Institutions (PRIs) and Urban Local Bodies (ULBs) is another stated commitment.¹ This includes the government’s commitment to holding elections for these bodies ¹ and undertaking financial empowerment and capacity-building initiatives for elected representatives.⁴

This intense focus on digital governance and transparency is driven by multiple objectives. Primarily, it aims to improve the efficiency and accessibility of public services, directly benefiting citizens.⁷ Concurrently, digital platforms and transparent processes ⁴ serve as mechanisms to reduce opportunities for corruption and enhance administrative accountability. These reforms are also crucial for building public trust and bolstering investor confidence ¹⁴, aligning with the broader goal of creating a conducive environment for business and investment.¹

2.4 Political and Administrative Roadmap (including Statehood context)

The political future of Jammu & Kashmir, particularly the question of statehood restoration, remains a significant aspect of the regional discourse. Official government documents, including the 2025-26 Budget Speech, acknowledge the restoration of full statehood as a “deeply cherished aspiration of the people” and affirm that the government “remains resolute in working towards its fulfilment”.¹

However, these official documents do not provide a specific timeline for this restoration. This absence of a concrete roadmap has led to calls for clarity and timelines from opposition political parties within J&K.¹⁷ Critics argue that the ambiguity surrounding statehood and the current dual system of governance under the Union Territory structure creates uncertainty and affects the political aspirations of the populace.¹⁷

Despite the political acknowledgment of the statehood aspiration, the current administrative and development framework operates firmly within the Union Territory structure established post-August 2019. Key administrative functions, such as the budget for the J&K Police, have been migrated to the purview of the Union Ministry of Home Affairs (MHA) from the fiscal year 2024-25 onwards.¹ The MHA actively oversees and reviews the progress of development projects in the Union Territory.³ The immediate focus of the administration, as reflected in its plans and budgets, is on achieving normalcy, establishing peace, accelerating development, and improving governance under the existing UT setup.¹ The commitment to holding elections for local bodies (PRIs and ULBs) is presented as a key step in strengthening grassroots democracy within this framework.¹ Thus, while statehood remains a stated long-term political goal, the current operational priority is on implementing the development agenda under the Union Territory administration, backed by significant central oversight and resources.

3. Pillars of Development: Major Infrastructure Initiatives

A central pillar of Jammu & Kashmir’s development strategy is a massive push in infrastructure creation and upgradation across transportation, energy, and digital connectivity sectors. This is seen as fundamental to unlocking economic potential, improving quality of life, enhancing national integration, and strengthening strategic capabilities.

3.1 Enhancing Connectivity: Transportation Networks

Recognizing the challenges posed by J&K’s rugged geography and the historical limitations on mobility, trade, and tourism, the government has prioritized revolutionizing connectivity through substantial investments in roads, tunnels, railways, and air infrastructure.² A national investment figure of ₹1 lakh crore for roads and tunnels was mentioned, with a specific strong focus on J&K.²

Roads & Expressways:

The road network is undergoing significant expansion and improvement:

• National Highways: Major upgrades are ongoing on key routes like Jammu-Akhnoor-Poonch, Srinagar-Baramulla-Uri, and the crucial Chenani-Sudhmahadev-Khellani-Kishtwar-Khanabal stretch (NH-244).¹ Development work is also progressing on segments like Baramulla-Kupwara-Trehgam, Baramulla-Uri, and bypasses for Pattan and Baramulla.¹ The Akhnoor-Poonch road, vital for border connectivity, is also being enhanced.²⁰
• Expressways: The Delhi-Amritsar-Katra Expressway is a flagship project under construction, aiming to drastically cut travel time between Delhi and Katra (Vaishno Devi).¹ While the Haryana section became operational in late 2024 ²², the project faces significant delays due to land acquisition challenges, particularly in Punjab, which could impact the overall completion timeline.²⁴ The status and progress of the J&K portion require continuous monitoring.²⁰
• Ring Roads: To decongest the capital cities, ring roads are being constructed. The 58-km Jammu Ring Road is largely complete, with final touches and a tunnel section targeted for completion by June 2025.¹ However, an attempt to operationalize its toll plaza in December 2024 faced stiff local resistance due to the project’s incomplete status, forcing a temporary suspension.³⁰ The Srinagar Ring Road project involves two phases (Phase 1: 42 km Galander-Narbal, Phase 2: 18.84 km Narbal-Ganderbal).³¹ As of December 2024, Phase 1 was reported to be 65% complete, with a target opening date of December 2025 ³¹, although an earlier target of June 2025 was also mentioned.²⁷ The project, awarded in 2018 for ₹939.41 crore (EPC cost), faced initial delays but has reportedly picked up pace.³¹ Concerns have been raised regarding the felling of over 1 lakh trees for its construction.³²
• Rural & Other Roads: Ambitious targets include blacktopping 4,000 km of roads under schemes like PMGSY, Cities & Towns Scheme, CRIF, and NABARD/RIDF.¹ J&K achieved the 3rd rank nationally in PMGSY road length completion.⁴ Around 150 road and bridge projects under NABARD and approximately 150 projects (750 km) under PMGSY-IV are planned.¹ A key objective is to connect all unconnected habitations with a population over 250 (as per 2011 census) within the next two to three years.¹

Tunnels:

Tunnels are indispensable for ensuring all-weather connectivity in the mountainous terrain, particularly for access to Ladakh and remote areas, overcoming challenges of heavy snowfall and landslides.

• Z-Morh Tunnel (Sonamarg Tunnel): This 6.5 km tunnel on the Srinagar-Leh highway (NH-1), along with its parallel escape tunnel and approach roads, provides year-round connectivity to the tourist destination of Sonamarg, previously cut off during winter.³³ Constructed at a cost of approximately ₹2,700 crore, the project faced delays but was eventually completed and inaugurated in January 2025.² It was implemented by the National Highways and Infrastructure Development Corporation Limited (NHIDCL) through contractor APCO Infratech.³³
• Zojila Tunnel: This is a far more ambitious project – a 13-14 km tunnel under the Zoji La pass, set to be Asia’s longest road tunnel at such a high altitude (over 11,500 ft).⁴⁰ It is the critical link for ensuring all-weather connectivity between Srinagar and Leh/Ladakh, reducing the current arduous travel time across the pass from hours to about 30 minutes.² Construction began in October 2020, using the New Austrian Tunnelling Method (NATM).⁴⁰ The project, costing an estimated ₹6,809 crore, is being implemented by NHIDCL through Megha Engineering & Infrastructure Ltd (MEIL).⁴⁰ Progress reports vary, with figures like 35% completion (April 2025) ³⁹ and 52% completion (August 2024) ⁴⁰ cited. The completion timeline has also seen revisions, with targets ranging from September 2026 ²⁷ to 2028 mentioned in recent reports.³³
• Other Tunnels: Several other tunnel projects are crucial for improving connectivity and safety on NH-44 (Jammu-Srinagar highway) and NH-244 (Chenani-Kishtwar-Khanabal). These include the completed Qazigund-Banihal ⁴ and Chenani-Nashri tunnels.⁴² Ongoing works include the Banihal Bypass tunnel (target Sept 2025) ²⁷, and multiple tunnels on the challenging Udhampur-Ramban section (Dalwas, Cafeteria Morh) and Ramban-Banihal section (Marog-Digdol, Digdol-Khuni Nallah), with an overall target completion of June 2026 for NH-44 tunnels.²⁰ On NH-244, the Sudhmahadev Dranga and Singhpora-Vailoo tunnels are in advanced stages ¹ and noted for their strategic importance as an alternative route less exposed than NH-44.²¹

Railways:

The Udhampur-Srinagar-Baramulla Rail Link (USBRL) project stands out as a monumental engineering feat and a project of national importance, finally connecting the Kashmir Valley with the rest of India’s railway network.6

• Project Scope & Cost: The 272 km line traverses extremely challenging Himalayan terrain, involving numerous tunnels (including India’s longest transport tunnel T-50 at 12.77 km) and bridges.³⁶ The total project cost was estimated at ₹28,000 crore in 2022.⁴⁶
• Status & Sections: Several sections were commissioned over the years: Udhampur-Katra (July 2014), Qazigund-Baramulla (Oct 2009), Banihal-Qazigund (June 2013).⁴² The Banihal-Sangaldan section (48.1 km) was inaugurated in February 2024, marking the commencement of electric train operations in the valley and the operationalization of tunnel T-50.⁴⁶ The final, most challenging leg is the 111 km Katra-Banihal section, which includes the Chenab and Anji Khad bridges.⁴⁶
• Iconic Bridges: The Chenab Rail Bridge, the world’s highest railway bridge at 359 meters (taller than the Eiffel Tower), had its arch completed in April 2021 and overarch deck completed in August 2022.⁶ The Anji Khad Bridge is India’s first cable-stayed railway bridge.⁴⁴
• Final Completion & Operations: The final Katra-Reasi section is nearing completion, with successful trial runs conducted.⁴⁶ Train services on the Chenab Bridge connecting Sangaldan/Ramban to Reasi are expected to commence very soon.⁴⁵ The inauguration of the full line, enabling direct train travel between Jammu/Katra and Srinagar/Baramulla, was anticipated around December 2024 or January 2025 ⁴⁸, although a planned inauguration by the Prime Minister on April 19, 2025, was postponed due to adverse weather forecasts.⁴⁹ Full commissioning appears imminent.
• Electrification: Significant portions, including Banihal-Baramulla and Udhampur-Sangaldan, are now electrified, reducing reliance on fossil fuels.⁴⁴
• Implementing Agencies: The project is executed by Indian Railways, with Northern Railway as the primary zonal railway, and significant contributions from Konkan Railway Corporation Limited (KRCL) and IRCON International Limited.⁴⁴

Airports & Heliports:

To improve air connectivity, expansion of Jammu and Srinagar Airports is planned.1 Development of the Kishtwar Airstrip under the Regional Connectivity Scheme (RCS-UDAN) is also underway.1 The Subsidized Helicopter Service Scheme is being expanded, coupled with the construction of new helipads to improve access to remote areas.1 J&K has also recorded its highest ever air traffic, indicating growing demand.4

Inland Waterways:

An MoU worth ₹100 crore has been signed with the Inland Waterways Authority of India, signaling intent to develop water transport, potentially for tourism enhancement.8

The immense scale and technical complexity of these transportation projects, particularly the all-weather tunnels and the USBRL traversing treacherous terrain, strongly suggest a dual purpose. Beyond the clear economic benefits of improved connectivity for trade, tourism, and local mobility, these projects significantly enhance India’s strategic and military logistics capabilities in a sensitive border region.⁶ The emphasis on “all-weather connectivity” is paramount for ensuring year-round movement of troops and supplies, especially towards the Ladakh border.⁶ The designation of USBRL as a project of “national importance” ⁶ and the strategic value attributed to tunnels on NH-244 ²¹ further reinforce this interpretation. The substantial investment and engineering efforts involved point towards prioritization driven by both developmental and national security considerations.

However, the implementation of such large-scale projects is not without hurdles. Land acquisition has emerged as a significant bottleneck, causing delays and even tender cancellations for parts of the Delhi-Amritsar-Katra Expressway in Punjab ²⁴ and impacting the Srinagar Ring Road.³¹ The national Bharatmala Pariyojana program, under which many highways fall, is facing overall delays and cost escalations.³² The Zojila tunnel’s completion date has seen multiple revisions ³⁹, and the premature operationalization of the Jammu Ring Road toll plaza met with public resistance.³⁰ These instances highlight potential friction between ambitious project timelines, ground realities, local community concerns, and administrative processes, which could affect final delivery schedules and costs.

3.2 Powering Progress: Energy Sector Development

The energy sector is identified as a critical enabler for economic growth and improved living standards, with a two-fold vision: achieving energy self-sufficiency and becoming a net power exporter by harnessing J&K’s vast hydro potential, and ensuring 24×7 reliable, affordable electricity for all households by 2027-28.¹

Hydropower:

Jammu & Kashmir possesses an estimated hydropower potential of 20,000 MW, of which only about 3,400 MW has been harnessed to date.50 A new hydropower policy is planned to accelerate development and attract private investment.50

• Major Ongoing Projects: Several large hydro projects are under construction, primarily managed by Chenab Valley Power Projects Private Limited (CVPPPL), a joint venture between NHPC and JKSPDC.⁵² These include Pakal Dul (1000 MW), Kiru (624 MW), Kwar (540 MW), and Ratle (850 MW), collectively expected to add over 3,000 MW of capacity by 2027.¹ The Kiru project, for instance, received investment approval in March 2019, commenced construction activities in September 2020, and secured a term loan of ₹1,869 crore from REC Limited in April 2024.⁵²
• Future Projects: A pipeline of future projects aims to add another 4,500 MW within the next decade, including Kirthai-I, Dulhasti-II, Bursar, Sawalkote, Uri-I Stage-II, Ujh, and Kirthai-II.¹

Renewable Energy (Solar):

Complementing hydropower, J&K is leveraging its significant solar energy potential, estimated at 111,050 MWp (second highest in India).56

• Rooftop Solar: The government is actively promoting rooftop solar installations, particularly through the central ‘PM Surya Ghar: Muft Bijli Yojana’.⁵⁰ An ambitious target is set to solarize 22,494 government buildings, adding 314 MW capacity, by December 2025.¹ The Jammu and Kashmir Energy Development Agency (JAKEDA) aims for 20,000 building rooftops by end-2025.⁵⁶ Progress is visible, with KPDCL reporting over 100 rooftop installations and achieving 1 MW capacity under the scheme.⁵⁶ Additional state subsidies have also been approved to encourage adoption.⁵⁶
• Solar Pumps: Under the PM-KUSUM scheme, 5,000 solar-powered agriculture pumps are planned for installation, benefiting farmers.¹
• Other Solar Initiatives: Seven new small solar projects with an aggregate capacity of 32.25 MW were completed recently.¹ The potential for dedicated Renewable Energy SEZs has been identified ⁵⁷, and promotion of Green Buildings is also on the agenda.⁵⁸

Power Distribution Reforms:

A critical challenge facing the sector is the high level of Aggregate Technical & Commercial (AT&C) losses, reported at 41% currently, and significant under-recovery of costs (average supply cost ₹7/unit vs. recovery ₹2.5/unit).50 These inefficiencies have contributed to large outstanding power purchase liabilities, necessitating borrowing of ₹28,000 crore in recent years and increasing public debt.1 Addressing this is a major priority.

• Revamped Distribution Sector Scheme (RDSS): This centrally sponsored scheme is the main vehicle for distribution reforms. The Centre sanctioned ₹5,620 crore, and J&K submitted a comprehensive investment plan of ₹12,922 crore under RDSS.¹ The plan focuses on 100% smart metering, loss reduction works, and modernization of the distribution network in both rural and urban areas.¹
• Implementation Status: Phase-I of RDSS is under execution, with over 40% progress reported on loss reduction works and projects targeted for completion by 2026.⁵⁰ Over 40,000 smart meters have been installed so far as part of the push towards universal smart metering.⁵⁰
• Targets: The goal is to reduce AT&C losses from the current 41% to 25% by 2025-26.¹ This, combined with strengthened billing and collection mechanisms, aims to make the power sector financially sustainable.⁵⁰

The power sector strategy demonstrates a clear reliance on large-scale hydropower projects for future capacity and export potential, leveraging J&K’s natural resource endowment.⁵⁰ However, the success of this long-term generation plan is intrinsically linked to the concurrent efforts to overhaul the highly inefficient distribution system.¹ The massive AT&C losses and resulting financial burden represent a major vulnerability. The RDSS program, with its focus on technological solutions like smart meters and network modernization ¹, is therefore critical. Failure to achieve the targeted loss reduction could undermine the financial viability of the new generation investments and impede the goal of providing reliable, affordable power.

Simultaneously, the promotion of solar energy, especially decentralized rooftop systems and agricultural pumps ¹, serves as a complementary strategy. While currently smaller in scale compared to hydro ambitions, solar power offers benefits like reduced grid dependence for consumers, potential mitigation of distribution losses through localized generation, empowerment of farmers and households, and alignment with national renewable energy objectives.⁵⁶ This diversification adds resilience to the overall energy plan.

3.3 Building a Digital J&K: Connectivity and e-Governance

Enhancing digital connectivity and leveraging it for improved governance and service delivery is a key component of the development strategy.

BharatNet Implementation:

The national BharatNet project aims to connect all Gram Panchayats (GPs) and subsequently all villages with broadband infrastructure.59

• National Context: The project has faced considerable delays nationally, missing several deadlines since its inception in 2011 (originally NOFN).⁶³ As of early 2025, national coverage was estimated at around 30% of villages, with about 2.14 lakh GPs connected.⁶² Implementation challenges include difficult terrain (especially in regions like the Northeast), funding utilization issues, and ensuring last-mile connectivity and network utilization.⁶³
• J&K Status: Progress in J&K under BharatNet includes the laying of Optical Fiber Cable (OFC) and commissioning of services. As of March 2025, official data indicated 9,789 Fibre-To-The-Home (FTTH) connections commissioned in J&K.⁵⁹ Funding disbursed to J&K under the project amounted to ₹259 crore as of December 2023.⁶² However, mirroring national trends, connectivity gaps may persist, particularly in remote rural areas, as suggested by user feedback requesting OFC in specific locations.⁶⁰
• Revised Strategy: An amended BharatNet program, approved in August 2023, aims to address implementation issues by upgrading the network architecture (ring topology), focusing on utilization through local entrepreneurs (‘BharatNet Udyamis’), appointing BSNL as the single Project Management Agency (PMA) for Operation & Maintenance, and utilizing a Public-Private Partnership (PPP) model in several states.⁵⁹

Digital Connectivity and e-Governance:

Beyond BharatNet, broader efforts include expanding general internet infrastructure and rolling out 4G and 5G services.8 National data shows a significant increase in mobile broadband speeds following 5G deployment.59 This improved connectivity underpins the ‘Digital J&K’ vision.7

• Digital J&K Vision: This policy aims to enhance government efficiency, transparency, and service delivery through digital technologies, striving for cashless, presence-less, and paperless interactions.⁷
• e-UNNAT Portal & Service Delivery: The unified e-UNNAT (Jan Sugam) portal serves as the primary interface for citizens to access online services.¹⁰ The number of services offered via this platform has seen exponential growth, from 35 in 2019/2021 to 913 by August 2023, 1028 by November 2023, and 1117 by February 2025.⁹
• National Recognition: This rapid expansion led J&K to achieve the top rank among Union Territories in the NeSDA 2021 assessment ¹² and subsequently rank among the top states/UTs nationally in terms of the quantity of e-services provided.⁹ Collaboration between J&K and states like Manipur has been facilitated to share best practices.⁹
• Supporting Systems: Initiatives include integration with Digi-Locker for document access, the Rapid Assessment System (RAS) for collecting citizen feedback on service quality, and plans to utilize AI for further public service enhancements.⁸

While Jammu & Kashmir has demonstrated remarkable progress in expanding the availability of e-governance services, achieving national leadership in the number of online offerings ⁹, a potential gap may exist regarding the universal accessibility and quality of the underlying digital connectivity required to utilize these services effectively. The documented challenges and delays in the national BharatNet program ⁶³, which forms the backbone for rural broadband, suggest that ensuring reliable, high-speed internet access for all citizens, especially in geographically challenging rural and remote areas, might still be an ongoing process despite the impressive front-end service portal development.⁵⁹ Bridging this potential divide between service availability and universal access remains crucial for realizing the full benefits of the Digital J&K vision.

4. Fostering Economic Growth and Investment

A central theme of J&K’s future strategy is accelerating economic growth, diversifying the economy, creating employment opportunities, and attracting significant investment by improving the overall business environment.

4.1 Overall Economic Picture

The administration highlights positive economic trends post-2019, with the Gross State Domestic Product (GSDP) reportedly expanding from ₹1,64,103 crore in 2019-20 to ₹2,45,022 crore in 2023-24.¹ Growth projections estimate a 7.5% GSDP growth rate for 2024-25, accelerating to a target of 9.5% in 2025-26.¹ The tertiary (services) sector remains dominant, projected to contribute 61.70% to Gross State Value Added (GSVA) in 2024-25, followed by the primary sector (agriculture and allied activities) at 20.00%, and the secondary sector (industry/manufacturing) at 18.30%.¹

4.2 Sector-Specific Strategies

Efforts are underway to strengthen traditional sectors while promoting diversification into new areas.

Agriculture & Allied Sectors:

Recognizing the importance of the primary sector, the administration has launched the Holistic Agriculture Development Programme (HADP) as a flagship initiative.1

• Scope & Objectives: With a substantial outlay of ₹5013 crore covering 29 projects across agriculture, horticulture, livestock, and R&D, HADP aims to fundamentally transform the sector from subsistence farming to a modern, commercially viable, and sustainable agri-economy.⁶⁶ Key goals include doubling value addition by 2027-28 ¹, boosting sectoral growth, enhancing farmer income, and building economic resilience through technology and market linkages.⁶⁷
• Implementation & Progress: The program involves phased implementation focusing on outreach, onboarding farmers, and project grounding/monitoring.⁶⁶ Significant progress has been reported in its initial phase, including extensive farmer engagement through the ‘Kisan Sampark Abhiyan’ (reaching over 9 lakh farmers).⁶⁷ Digital tools are central to HADP, with platforms like the ‘Kisan Sathi Portal’ (processing 3.5 lakh applications), the ‘Daksh Kisan’ Learning Management System (LMS) for skilling (over 1.5 lakh learners), an AI-based Credit Scheme Advisor, and an Online DPR Generator being launched and utilized.⁶⁶ Additionally, 500 ‘Kisan Khidmat Ghars’ have been established as one-stop centers for farmers, providing inputs, advisories, and access to technology.⁶⁷ District-level committees actively review progress and set targets for various components like registrations and project deployment.⁶⁸
• Other Initiatives: Efforts include expanding the Kisan Credit Card (KCC) scheme coverage, establishing Agri Business Centers for better market access ¹, and promoting high-yield varieties and climate-resilient practices through collaboration with agricultural universities (SKUAST-Jammu & SKUAST-Kashmir).⁶⁷ J&K has reportedly ranked well nationally in terms of monthly agricultural household income and performance in the agriculture sector.⁴

Horticulture:

Focus is on increasing both the area under cultivation and overall production, with a target of a 15-20% boost over the next five years.1 The High Density Plantation Scheme, initially focused on apples, has been expanded to include other high-value crops like mangoes, litchi, cherries, and walnuts.42

Dairy & Fisheries:

Plans include establishing additional processing units to increase milk production towards the goal of self-sufficiency.1 The highest ever milk production (2594 thousand MTs) was recorded recently.4 Expansion of trout farming is also being pursued.1

Wool/Pelt/Leather:

Strategies involve revitalizing the traditional wool and pelt sector by introducing advanced processing technologies and attracting private investment, alongside formulating a policy to establish a local leather tanning industry.1

Tourism:

Tourism, a traditional economic backbone, has been granted ‘Industry Status’ to facilitate further growth.1 The region witnessed record tourist footfalls, reported at 1.88 crore in 2022 4 and 2.36 crore in 2024.70

• Strategy: The approach is multi-pronged, focusing on promoting ‘All Weather Tourism’ ⁷¹, diversifying offerings (adventure, religious, border, film, eco-tourism), developing new master plans for key destinations like Gulmarg, Pahalgam, and Sonamarg ¹, and enhancing infrastructure and amenities, including ropeway projects.² Promoting homestays, especially in rural and offbeat areas, is a key initiative to generate local livelihoods.¹ The SPREAD (Sustainable Promotion of Emerging Alternate Destination) initiative seeks funding to develop alternative destinations and reduce pressure on popular spots.⁷⁰ Specific focus areas include upgrading winter sports infrastructure (Sonamarg, Gulmarg) ¹, developing water sports (Manasbal, Ranjit Sagar Lake, Dal Lake, Basohli) ¹, boosting tourism in the Jammu region (e.g., water park near Sidhra, Jambu Zoo expansion, Basohli adventure hub, Peerkho-Mubarak Mandi vertical lift) ¹, operationalizing the Film Policy to attract filmmakers ⁷⁰, and formulating an Eco-Tourism Policy to address environmental concerns like waste management.⁷⁰
• Governance & Funding: A significant capital allocation of ₹390.20 crore was made for tourism in the 2025-26 budget.⁷⁰ A multi-stakeholder Advisory Committee is proposed to guide policy and address sector issues.⁷⁰
• Goal: The ambitious target is to increase tourism’s contribution to J&K’s GSDP from the current 7% to at least 15% over the next 4 to 5 years.¹

Handicrafts:

Efforts are focused on promoting ‘Brand J&K’, particularly for iconic products like pashmina, saffron, and other traditional handicrafts.1 Securing Geographical Indication (GI) tags for more crafts is being pursued 1; Kashmiri Saffron already holds a GI tag.42 The potential for establishing dedicated Handicrafts Special Economic Zones (SEZs) in locations like Srinagar, Anantnag, or Baramulla has been suggested to provide tax benefits, R&D support, and direct market access for artisans.57

4.3 Industrial Development and Investment Climate

Attracting investment and fostering industrial growth is a major priority, facilitated by new policies and administrative reforms.

• Policy Framework: Key policies include the New Central Sector Scheme for Industrial Development of J&K (notified Feb 2021 with a ₹28,400 crore outlay) ⁴², the J&K Private Industrial Estate Development Policy, 2021-30 (aimed at facilitating private sector participation in developing industrial infrastructure) ¹⁶, and the Policy for Promotion of Foreign Investment in J&K-2022.¹⁴ A comprehensive review of existing industrial policies is also planned.¹
• Investment Promotion & Facilitation: The government reports significant interest from investors, with proposals exceeding ₹54,000 crore received by July 2022 ⁴² and commitments of ₹33,000 crore mentioned.¹⁹ More recent figures cite proposals worth ₹73,376 crore, with ₹2,153 crore realized in FY 2022-23.⁴ A key focus is ensuring that land allotments translate into actual investment flows and tangible employment generation.¹ Investment Promotion and Facilitation Cells have been constituted.⁷³
• Single Window System: To improve the Ease of Doing Business (EoDB), J&K launched an integrated Single Window Clearance System.¹⁴ Crucially, this system has been integrated with the National Single Window System (NSWS), making J&K the first Union Territory to do so.¹⁵ This digital platform allows investors (including foreign investors) to identify and apply for various business approvals and licenses in one place, reducing regulatory burden.¹⁴ The NSWS portal is linked to the India Industrial Land Bank (IILB), which hosts details of 45 industrial parks in J&K, aiding investors in site selection.¹⁵ Over 160 industrial services are planned for integration into the system.¹⁵
• Industrial Infrastructure: J&K currently has 64 industrial estates, with plans to develop 46 more.⁶⁵ The Private Industrial Estate policy allows private developers to establish estates on a minimum of 5 acres (2 acres for IT/ITES parks).¹⁶ There is a focus on providing necessary infrastructure within these estates, including considerations for workforce housing (‘labour sarais’).⁶⁵ The potential for developing sector-specific Special Economic Zones (SEZs) – proposed for areas like IT & Technology, Handicrafts, Renewable Energy, and Pharmaceuticals & Biotech – is seen as a way to attract targeted foreign direct investment (FDI), boost exports, and create specialized hubs.⁵⁷ Projections suggest SEZs could significantly increase industrial jobs, investment inflows, infrastructure growth, and export performance.⁵⁷
• Ease of Doing Business (EoDB): Improving EoDB is an explicit objective.¹⁶ While J&K’s ranking was 22nd in 2017-18 ¹³, the recent policy changes, particularly the Single Window System, aim to improve this standing and create a more attractive investment destination.

The post-2019 economic strategy clearly pivots towards attracting significant external investment, both domestic private and foreign, as a primary engine for growth.¹⁴ This is facilitated through a revamped policy landscape, substantial central financial incentives ⁴², and crucial administrative reforms like the Single Window System.¹⁴ The success of this strategy hinges on the effective implementation of these policies, the ability to translate investor interest and land allotments into operational projects ¹, and overcoming potential bureaucratic hurdles or ground-level challenges like land acquisition, which have plagued infrastructure projects.²⁵

While tourism remains a vital sector with ambitious growth targets ¹, the economic vision clearly includes a strong push for diversification. Significant resources and focus are being directed towards modernizing agriculture via HADP.¹ Furthermore, industrial policies and SEZ proposals explicitly target the development of new sectors such as Information Technology (IT), Renewable Energy, and Biotechnology/Pharmaceuticals.¹⁶ This diversification aims to build a more resilient, broad-based economy, reducing over-reliance on any single sector and creating a wider range of employment opportunities.¹⁹

4.4 Supporting MSMEs and the Startup Ecosystem

Recognizing the role of smaller enterprises, specific initiatives target Micro, Small, and Medium Enterprises (MSMEs) and startups.

• MSME Support: Measures include expanding the coverage of the Credit Guarantee Fund Trust for Micro and Small Enterprises (CGTMSE) scheme, implementing the Raising and Accelerating MSME Performance (RAMP) scheme, and launching MSME Health Clinics and Skill Development Programs tailored for the sector.¹ A notable 54% growth in exports from the MSME sector has been reported.⁴
• Promoting Local Enterprises: Government procurement policies are being leveraged to support local businesses. This includes increasing procurement from local suppliers through the Government e-Marketplace (GeM) portal and implementing a price preference policy favouring local MSMEs in public procurement tenders.¹
• Startup Ecosystem: Efforts are underway to strengthen the startup environment by enhancing the existing Venture Capital Fund, fostering better partnerships with incubation centers, and improving market access opportunities for new ventures.¹ The Jammu & Kashmir Entrepreneurship Development Institute (JKEDI) plays an active role in this space.⁷⁴ The overall goal is to position J&K as a dynamic hub for entrepreneurship.¹

4.5 Resource Management

Sustainable management of natural resources is also addressed, particularly concerning construction materials essential for the infrastructure drive. Policies aim to promote sustainable resource extraction while actively combating illegal mining activities to ensure availability at reasonable prices without compromising environmental protection or local community interests.¹

5. Investing in People: Social Development and Inclusion

Alongside economic and infrastructure development, the strategy places significant emphasis on social development, focusing on enhancing human capital through education and healthcare, providing employment and skills, and ensuring inclusive growth.

5.1 Education Transformation

The education sector is undergoing reforms aligned with national policies and aimed at improving quality and accessibility.

• NEP 2020 Implementation: The National Education Policy (NEP) 2020 has been fully implemented across all Government Degree Colleges in J&K.⁷⁵ This includes the introduction of four-year undergraduate programs ¹ and a focus on offering job-oriented and skill-based courses to enhance student employability.⁷⁶ While Business Management programs are offered, Artificial Intelligence is currently taught as part of Computer Applications rather than a separate program.⁷⁶
• School Education Enhancement: J&K reported its highest ever school enrolment figures recently.⁴ Key initiatives include upgrading 40 government higher secondary schools into integrated K-12 institutions, establishing 600 ICT Labs, 2,000 Smart Classrooms, and 500 Atal Tinkering Labs to boost digital literacy and innovation.¹ Furthermore, 396 schools are being upgraded under the central PM-SHRI Scheme.¹ Early childhood education is being strengthened through the development of 15,000 pre-primary schools.¹ There is also a focus on identifying, enrolling, and mainstreaming out-of-school children, with particular attention to girls’ education.¹
• Higher & Technical Education Infrastructure: Significant expansion has occurred, with 50 new degree colleges established and 25,000 additional college seats created in a single year.⁴ Premier institutions like IIT Jammu and IIM Jammu are now functional.⁴² The Food Craft Institute in Jammu is being upgraded to an Institute of Hotel Management (IHM).¹ Plans include establishing the Jammu & Kashmir Skill and Entrepreneurship University (J&K SEU) and a National Law University (NLU) in the UT.¹ Jammu University has achieved A++ accreditation status from NAAC, and the Islamic University of Science and Technology (IUST) is recognized as emerging leader in skill development and innovation.¹
• Goal: The overarching aim is to transform J&K into a prominent educational hub.¹

5.2 Strengthening Healthcare Infrastructure and Access

Healthcare is another major focus area, with initiatives aimed at expanding infrastructure, improving service quality, and ensuring financial accessibility.

• Universal Health Coverage (Ayushman Bharat PM-JAY SEHAT): Launched in December 2020, the SEHAT scheme extends the benefits of the national Pradhan Mantri Jan Arogya Yojana (PM-JAY) to provide universal health insurance coverage of ₹5 lakh per family per year for secondary and tertiary care hospitalization to all residents of J&K.⁴
• SEHAT Scheme Implementation & Impact: The scheme has significantly increased access to cardiac interventions, with data showing substantial rises in angiographies (1,661 pre-PMJAY to 3,858 post-PMJAY) and angioplasties (1,308 to 2,103) between 2018-20 and 2021-23.⁷⁸ Access to advanced therapies like CRT/AICD implants also saw an exponential increase (24 to 127).⁷⁸ The scheme continues to process a high volume of claims, with over ₹85 crore disbursed for 55,588 claims between October and November 2024 alone.⁷⁹ Portability allows beneficiaries to access care outside J&K (378 cases worth ₹83 lakh in the same period).⁷⁹ However, challenges have occurred, including operational issues following the exit of an insurance company (requiring an alternative mechanism) ⁷⁹ and findings from a CAG audit pointing to instances of ineligible beneficiaries being registered (16,865 identified in J&K 2018-21) and some empanelled hospitals charging beneficiaries (459 cases noted in J&K).⁸⁰
• New Health Infrastructure: A major expansion of health infrastructure is underway. AIIMS Vijaypur (Jammu) is operational ³⁶, while AIIMS Kashmir is targeted for operationalization by 2025-26.¹ Seven new Government Medical Colleges (GMCs) have been operationalized.⁴² GMC Udhampur is nearing completion, and work on GMC Handwara is being fast-tracked.¹ Two State Cancer Institutes are operational ⁴², with advanced equipment like Linear Accelerators (LiNAC) being installed at SCI-GMC Jammu and SCI-SKIMS Srinagar.¹ Fifteen Nursing Colleges have been operationalized ⁴², with ten being fully equipped with faculty and staff.¹ Work on the Government Homeopathy Medical College in Kathua is being expedited ¹, and a Modern Drug Testing Laboratory in Kathua is operational.¹ Plans include a 250-bedded Mother & Child Care Hospital (MCCH) in Anantnag ¹, and a 200-bedded IPD facility at SKIMS Medical College, Bemina, has been completed.¹
• Enhanced Equipment & Services: Funding for machinery and equipment in health facilities is being doubled.¹ All GMCs are slated to get 30-bedded Emergency Medicine Departments.¹ Three new Cath Labs are planned for North Kashmir, Pir Panjal, and Chenab Valley regions.¹ Over the next three years, MRI and PET scanning services are planned for all new GMCs.¹ CT scan services are being fully implemented in all district hospitals.¹ Dialysis services are being expanded significantly, aiming for coverage in all 83 Sub-District Hospitals (SDHs) and Community Health Centres (CHCs) over the next two years.¹ Additionally, 100 portable AI-based X-ray machines are planned for district and sub-district hospitals over two years.¹ Telemedicine services are being integrated to improve accessibility ¹, and a dedicated SEHAT App is being rolled out with features like teleconsultation, online appointments, and digital health records.¹ Screening for Non-Communicable Diseases (NCDs) is also being strengthened.¹
• Medical Education Expansion: Efforts are ongoing to increase the number of MBBS seats, postgraduate (MD/MS/DNB) courses, and seats in nursing and paramedical colleges to address the shortage of healthcare professionals.¹
• Public Health Goals: A specific target mentioned is achieving TB-free status in J&K.¹ Addressing the drug menace through strengthened de-addiction infrastructure and awareness campaigns is also a priority.¹

5.3 Skill Development and Employment Generation

Addressing unemployment and equipping the youth with relevant skills are critical components of the social development agenda.

• Unemployment Scenario: Official data indicates a decline in the unemployment rate for individuals aged 15 and above, from 6.7% in 2019-20 down to 6.1% in 2023-24.⁸¹ Concurrently, the Labour Force Participation Rate (LFPR) rose to 64.3% and the Worker Population Ratio (WPR) to 60.4% in 2023-24, suggesting increased economic activity and employment opportunities.⁸¹ However, a significant number of job seekers remain, with 3,70,811 youth registered on the official employment portal as of January 2025.⁸²
• Employment Generation Efforts: The government highlights multi-pronged efforts to create jobs. Since 2021, various self-employment schemes like Mumkin (transport sector), Tejaswini (women entrepreneurs), Prime Minister’s Employment Generation Programme (PMEGP), and Rural Employment Generation Programme (REGP) have reportedly enabled the creation of approximately 9.58 lakh self-employment opportunities.⁸¹ Around 1.36 lakh such opportunities were created in the fiscal year 2024-25 alone.⁸² The Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA) generated 3.01 crore person-days of employment in 2024-25 (up to Jan 2025), benefiting 8.07 lakh rural households.⁸¹ Public sector recruitment through JKPSC and JKSSB resulted in 11,526 selections in 2023 and 2024.⁸¹ Additionally, 45,688 jobs were reportedly provided to youth in the private industrial sector between 2022 and 2024.⁸¹ An earlier report mentioned the “largest ever recruitment drive” with 11,508 selections in 2021-22.⁴
• Mission YUVA (Yuva Udyami Vikas Abhiyan): This is a major new initiative launched specifically to foster entrepreneurship and self-employment among youth aged 18-49.⁸¹ It aims to identify potential entrepreneurs through baseline surveys and tech-enabled tools, providing structured support including mentorship, training, and access to capital.⁸³ The ambitious five-year goal is to facilitate the creation of over 1,37,000 new enterprises across various sectors, leading to the generation of approximately 4.25 lakh job opportunities.¹
• Skill Development Initiatives: Structured skill development programs are being implemented, including training under the Pradhan Mantri Kaushal Vikas Yojana (PMKVY) 4.0 and other schemes, with a target to train 1 lakh youth over five years.¹ The central Udaan Scheme, focused on skills and corporate job exposure for graduates, is also being revived.¹ The overall focus is on creating an industry-ready skilled workforce.¹ Infrastructure like the Sheikh-ul-Alam Hall in Budgam is being developed as a Skill Development & Training Centre.⁸⁵
• Connecting Job Seekers and Employers: Regular job fairs are being organized to bridge the gap between job seekers and employers, particularly in the private sector. Over the last 3-4 years, 246 job fairs were reportedly held, resulting in 4,893 on-the-spot placements by 2,760 participating companies, with an additional 6,640 candidates recommended for skill training.⁸¹

5.4 Inclusive Growth Initiatives

The strategy incorporates specific measures aimed at ensuring development benefits reach marginalized and vulnerable sections of society.

• Tribal Welfare: Initiatives include the construction of 25 new hostels for tribal students ¹, establishment of smart schools in tribal areas ¹, provision of livelihood generation and skill development opportunities tailored for tribal communities ¹, and dedicated scholarship programs.¹ Significantly, the Forest Rights Act, 2006, has been implemented for the first time in J&K, granting rights to forest-dwelling tribal communities.⁴
• Women Empowerment: Several schemes target women’s development, including the expansion of the Ladli Beti scheme (financial security for girl child), provision of free public transport for women, enhancement of financial assistance under the Marriage Assistance Scheme ¹, and support for women entrepreneurs through Self-Help Groups (SHGs) and micro-startup initiatives like the Tejaswini scheme.¹ New facilities like Sakhi Niwas (working women’s hostels) and Shakti Sadan (shelter homes) are also being established.¹
• Social Justice & Security: The notification of new Domicile Rules aimed to provide equality and rights to previously marginalized groups like West Pakistan refugees and Valmikis.⁴ Financial assistance continues for displaced persons and Kashmiri migrants.⁴ Social security pensions for old-aged persons, widows, divorcees, and specially-abled individuals have been enhanced.¹ Infrastructure for vulnerable groups includes the completion of a Halfway Home for mentally cured individuals and the upgradation of Anganwadi Centers.¹
• Food Security: Alongside the implementation of Aadhaar-linked Public Distribution System (PDS) and the ‘One Nation One Ration Card’ scheme ⁸, the government plans to implement a Smart PDS system in 2025-26.¹ Additionally, Antyodaya Anna Yojana (AAY) beneficiaries receive free ration of 10 kg per person per month ¹, and are also targeted for free electricity (up to 200 units/month).¹
• Worker Welfare: Over 34 lakh laborers in the unorganized sector have been registered on the national e-Shram portal.⁶⁵ A 24×7 helpline, “SHRAM MITRA,” is planned for Jammu and Srinagar to address worker grievances.¹ Labor laws are being amended, and benefits under various welfare schemes are being provided.¹ Specific attention is being given to the safety and facilities for power sector linemen, including dedicated huts and enhanced insurance coverage.⁵¹
• Sports Promotion: A major push aims to engage youth in sports, with participation figures reaching over 65 lakh in 2024-25 ⁸ and a target of 75 lakh.¹ This involves significant infrastructure development: constructing/upgrading 247 playfields, stadiums, and sports courts; upgrading 19 sports buildings ¹; establishing 100 Khelo India Centres across the UT ¹; setting up National Centres of Excellence for Water Sports at Dal Lake and Basohli ¹; establishing a Gymnastics Academy (Gindun Rajbagh, Khel Gaon Nagrota) ¹; creating four state-of-the-art Cricket Academies ¹; building two new Youth Hostels ¹; developing High-Performance Training Centers in all districts (phased approach) ¹; and commissioning two new swimming pools in the capital cities.¹ The goal is to make J&K a leading sports hub with quality infrastructure accessible to all.¹
• Disaster Management: Recognizing the region’s vulnerability, a Disaster Mitigation Fund is being established.¹ Proactive measures are planned to address specific risks like Glacial Lake Outburst Floods (GLOFs) and landslides.¹

The approach to social sector development reveals a strategy combining large-scale infrastructure creation (new hospitals, colleges, sports facilities) ¹ with universal access schemes designed to remove financial and social barriers (SEHAT insurance, NEP implementation, social security enhancements).¹ This dual focus aims for broad impact. However, the effective delivery and quality of these services, particularly ensuring equitable access across diverse and often remote geographical areas, remain inherent implementation challenges. Issues like ensuring adequate staffing in new institutions ⁷⁷, maintaining quality standards, and optimizing the utilization and reach of schemes like SEHAT ⁸⁰ will be critical for translating infrastructure and policy into tangible improvements in human development outcomes.

The employment generation strategy relies significantly on promoting self-employment through various government-backed schemes (Mumkin, Tejaswini, PMEGP, and the new Mission YUVA) ⁸¹ and continued public sector recruitment ⁴², supplemented by the rural safety net of MGNREGA.⁸¹ While efforts to attract industrial investment and reports of private sector job creation exist ⁸¹, the scale of these appears relatively modest compared to the numbers targeted through self-employment initiatives and the overall pool of registered unemployed youth.⁸³ The long-term sustainability and impact of this heavy reliance on self-employment and government programs, versus broader private sector job growth, will require close monitoring against unemployment trends and the success of industrial promotion policies. Ensuring that skill development initiatives align with actual market demands is also crucial.¹

6. Project Implementation: Tracking Progress and Funding

Monitoring the progress of the numerous development projects and understanding the financial mechanisms supporting them is crucial for assessing the implementation of J&K’s strategic roadmap.

6.1 Status Update on Key Infrastructure Projects

Based on available reports and official statements, the status of several major infrastructure projects as of early to mid-2025 is as follows (cross-referencing details from Section 3):

• Roads:

• Delhi-Amritsar-Katra Expressway: The Haryana section (135 km) is operational.²² However, significant land acquisition challenges persist in Punjab, leading to contract cancellations for some stretches and potential delays for the entire project, including the vital Amritsar spur.²⁴ Progress on the J&K section is under review by authorities.²⁰ Completion targets have varied, with dates like 2024, 2025, and 2026 mentioned.²²
• Jammu Ring Road: The 58 km road is reported as largely complete, with final works including a tunnel targeted for June 2025.²⁷ Phase-I (8 km) was inaugurated in August 2020.²⁸ A toll plaza established on the road faced suspension in December 2024 due to local protests over the project’s incomplete status.³⁰
• Srinagar Ring Road: This ~61 km project (in two phases) is under construction by NHAI. Phase 1 (42 km) was reported as 65% complete in December 2024, with a revised completion target of December 2025.³¹ An earlier target of June 2025 was also noted.²⁷ The project has faced delays and environmental concerns.³¹
• NH-44 (Jammu-Srinagar Highway): Work on crucial tunnels and viaducts between Udhampur and Banihal is ongoing. The Banihal Bypass is targeted for September 2025 completion, with other viaducts by June 2025 and the remaining tunnels (like Dalwas, Cafeteria Morh, Marog-Digdol, Digdol-Khuni Nallah) aimed for completion by June 2026.²⁰
• Tunnels:

• Z-Morh Tunnel: Completed and inaugurated in January 2025.³⁴
• Zojila Tunnel: Under construction. Progress reported between 35% (April 2025) ³⁹ and 52% (August 2024).⁴⁰ Completion targets vary between September 2026 ²⁷ and 2028.³³
• NH-244 Tunnels (Singhpora-Vailoo, Sudhmahadev-Dranga): Progress reviewed, noted as strategically important.²⁰
• Rail (USBRL Project):
• The final leg (Katra-Banihal) is nearing completion. Successful trial runs have been conducted on the Katra-Reasi section.⁴⁶ Train services over the Chenab Bridge (linking Sangaldan/Ramban to Reasi) are expected to start imminently.⁴⁵ The inauguration of the full line, enabling direct connectivity, was planned for April 19, 2025, but postponed due to weather; revised date awaited.⁴⁹ Earlier reports suggested completion by Dec 2024/Jan 2025.⁴⁸
• Power Projects:

• Hydro: Major projects like Pakal Dul, Kiru, Kwar, and Ratle are targeted for commissioning by 2027.¹ Construction on the Kiru project has been ongoing since September 2020.⁵⁵
• Distribution (RDSS): Phase 1 implementation is ongoing, with a target completion year of 2026.⁵⁰
• Solar: Solarization of government buildings target is December 2025.¹
• Health Infrastructure:
• AIIMS Kashmir is targeted for operationalization by 2025-26.¹ GMC Udhampur is reported as near completion.¹
• Other Projects:
• The Tawi Barrage project in Jammu is targeted for completion within the 2025-26 financial year.¹ The Jal Jeevan Mission aims for 100% Functional Household Tap Connections (FHTC).¹

6.2 Summary Table: Major Infrastructure Projects

The following table provides a consolidated overview of some key infrastructure projects, their scope, cost, implementing agency, and status based on available information:

Project Name	Sector	Key Features/Scope	Budget/Cost (Est./Actual)	Implementing Agency	Stated Timeline/Current Status	Relevant Sources
Zojila Tunnel	Transport (Road)	13-14 km all-weather tunnel, high altitude	~₹6,809 Cr (Approved 2018)	NHIDCL (Contractor: MEIL)	Target Sept 2026 / 2028; U/C (35-52% complete reported)	1
Z-Morh Tunnel (Sonamarg Tunnel)	Transport (Road)	6.5 km all-weather tunnel to Sonamarg	~₹2,700 Cr / ₹2,378 Cr (Revised balance work)	NHIDCL (Contractor: APCO Infratech)	Completed & Inaugurated Jan 2025	2
USBRL Project	Transport (Rail)	~272 km rail link connecting Jammu to Baramulla	~₹28,000 Cr (2022 estimate)	Indian Railways (NR, KRCL, IRCON)	Final leg (Katra-Banihal) nearing completion; Full line operational soon (Inauguration postponed)	6
Chenab Rail Bridge	Transport (Rail)	World’s highest rail bridge (Part of USBRL)	Part of USBRL cost	Indian Railways (KRCL involved)	Completed Aug 2022; Train services over bridge expected soon	6
Kiru Hydro Electric Project (HEP)	Energy (Hydro)	624 MW Run-of-river project on Chenab	Investment Approved (2019); REC loan ₹1,869 Cr (Apr 2024)	CVPPPL (NHPC/JKSPDC JV)	Target 2027; U/C since Sept 2020	1
Pakal Dul HEP	Energy (Hydro)	1000 MW project on Chenab	Part of CVPPPL portfolio	CVPPPL (NHPC/JKSPDC JV)	Target 2027; U/C	1
Kwar HEP	Energy (Hydro)	540 MW project on Chenab	Part of CVPPPL portfolio	CVPPPL (NHPC/JKSPDC JV)	Target 2027; U/C	1
Ratle HEP	Energy (Hydro)	850 MW project on Chenab	Part of overall hydro plan	(JV likely)	Target 2027; U/C	1
Srinagar Ring Road	Transport (Road)	~61 km semi-ring road (2 Phases)	Phase 1 EPC cost ₹939 Cr (2018)	NHAI	Phase 1: Target Dec 2025 (65% complete Dec 2024); Phase 2 U/C	1
Jammu Ring Road	Transport (Road)	~58 km ring road	~₹2,024 Cr (Est. 2020) / ₹1,100 Cr (Est. 2013)	NHAI	Largely complete; Target June 2025 for final works; Toll suspended Dec 2024	1
Delhi-Amritsar-Katra Expressway	Transport (Road)	~670 km expressway	₹25k Cr / ₹35k Cr / ₹39k Cr (Varying estimates)	NHAI	U/C; Haryana section operational; Punjab section delayed; Overall Target 2024/2025/2026	1
RDSS (J&K Implementation)	Energy (Distr.)	Smart metering, loss reduction, network modernization	₹12,922 Cr (J&K Investment Plan)	JK Power Dev Dept / Discoms	Phase 1 U/C; Target 2026 completion	1
AIIMS Kashmir	Health	Tertiary care hospital & medical institute	Part of PMDP/Central funding	MoHFW / CPWD	Target Operationalization 2025-26	1
AIIMS Vijaypur (Jammu)	Health	Tertiary care hospital & medical institute	Part of PMDP/Central funding	MoHFW / CPWD	Operational since 2021-22	36

Note: U/C = Under Construction; Est. = Estimated; Cr = Crore (INR); Timelines and costs are subject to change based on project progress and official updates.

6.3 Budgetary Allocations and Fiscal Management

The financing of J&K’s ambitious development agenda relies heavily on central government support, alongside efforts towards fiscal prudence and revenue enhancement.

• Budgetary Framework: The gross outlay for the 2025-26 budget was ₹1.4 lakh crore.⁶⁵ J&K’s own revenues were projected at ₹31,905 crore for the same year.⁶⁵ Key sectoral allocations included ₹1,750 crore for Healthcare, ₹1,388 crore for Education, ₹2,221 crore for Agriculture, and ₹2,021 crore for the Power sector.⁶⁵ Notably, the J&K Police budget was migrated to the Union Ministry of Home Affairs from FY 2024-25, with J&K receiving additional central grants of ₹5,000 crore over two years (2024-26) to compensate.¹
• Central Financial Support: The implementation strategy is significantly dependent on central assistance, funds from Centrally Sponsored Schemes (CSS), and special packages.¹ The government aims to fully utilize the favourable fund-sharing patterns available for CSS.¹ Major injections of central funds include the Prime Minister’s Development Package (PMDP) of 2015 (₹58,477 crore across 53 projects) ⁴² and the New Central Sector Scheme for Industrial Development (₹28,400 crore outlay).⁴² MHA actively reviews projects and financial assistance.³
• Fiscal Prudence Measures: Fiscal prudence is a stated priority.¹ Measures being implemented include curbing non-priority expenditure, enforcing austerity measures, improving Goods and Services Tax (GST) compliance through monitoring and dealer expansion, and implementing risk-based e-way bill verifications.¹ Aadhaar seeding and biometric verification are being used to streamline welfare databases.¹
• Debt Situation: The UT faces a significant debt burden, with public debt rising from 48% of GSDP in FY 2015-16 to 52% in FY 2023-24.¹ A major contributor to this was borrowing approximately ₹28,000 crore in recent years to cover outstanding power purchase liabilities stemming from high AT&C losses.¹ The strategy to manage this includes reducing high-cost debt, optimizing liabilities, and carefully calibrating repayment schedules for long-term fiscal stability.¹
• Fiscal Deficit: The government aims to reduce the fiscal deficit, bringing it closer to the targets set under the Fiscal Responsibility and Budget Management (FRBM) Act.¹
• Transparency Initiatives: Fiscal transparency is being enhanced through digital platforms like BEAMS (Budget Management Application), JKPaySys (Online Billing System), and the Empowerment/Jan-Bhagidhari portal, which provides public access to project details.¹

The financial architecture supporting J&K’s development plan clearly indicates a heavy reliance on fiscal transfers from the central government in the form of grants, shares in taxes, funding for Centrally Sponsored Schemes, and specific large-scale packages.¹ While efforts towards fiscal prudence and enhancing own-revenue generation are underway ¹, the scale of expenditure required for the infrastructure and social development goals necessitates continued substantial central support. The legacy issue of high debt, particularly linked to the power sector’s financial woes ¹, adds another layer of complexity. Therefore, the long-term fiscal sustainability of J&K’s development trajectory depends critically on both the continuation of central financial flows and the successful implementation of internal reforms, especially in revenue generation and expenditure management, with power sector reform being particularly crucial.

7. Analysis and Future Outlook

Jammu & Kashmir’s comprehensive strategy for the coming decades represents a concerted effort to leverage infrastructure development, economic diversification, social progress, and governance reforms to achieve a significant transformation. The underlying objective appears to be the creation of a stable, prosperous, and well-integrated region aligned with national development goals.

7.1 Synthesizing Objectives and Potential Impact

The multi-pronged strategy aims for a synergistic effect. Enhanced transportation infrastructure ² is intended to unlock economic potential by facilitating tourism, enabling easier movement of agricultural produce (like horticulture output) ², supporting industrial growth through better logistics, and improving access for the population. Investments in the power sector ¹ aim to provide reliable energy for industries and households, potentially generating revenue through exports. Digital connectivity and e-governance reforms ⁷ seek to improve service delivery, transparency, and the ease of doing business, thereby attracting investment.¹⁴ Economic diversification strategies, particularly the focus on modernizing agriculture (HADP) ⁶⁶ and promoting new industries alongside tourism ¹, aim to create sustainable livelihoods and reduce economic vulnerability. Social sector investments in health and education ¹ are designed to build human capital, while employment and skilling initiatives ⁸¹ directly address job creation. If successfully implemented, the cumulative impact could lead to a profound positive shift in J&K’s socio-economic landscape, characterized by higher growth, improved living standards, and greater integration.

7.2 Addressing Challenges

Despite the ambitious vision and significant investments, the path forward involves navigating several substantial challenges:

• Project Execution Hurdles: The timely and cost-effective completion of large-scale infrastructure projects is paramount but faces obstacles. Land acquisition has proven difficult for key projects like the Delhi-Katra Expressway and the Srinagar Ring Road, causing delays and requiring administrative intervention.²⁴ Meeting ambitious construction timelines in challenging Himalayan terrain, prone to geological instability and extreme weather, is inherently complex.² Cost escalations are also a risk, as seen nationally with the Bharatmala Pariyojana.³² Ensuring quality and addressing local concerns, as highlighted by the Jammu Ring Road toll issue ³⁰, are also vital for project success.
• Fiscal Sustainability: The region’s high dependence on central funding ¹ and significant existing public debt, exacerbated by power sector losses ¹, pose long-term fiscal challenges. Achieving the targeted reduction in AT&C losses in the power sector and improving own-revenue generation are critical for financial health beyond continued central support. Failure in these areas could strain resources needed for development and maintenance.
• Investment Translation: While policies and platforms like the Single Window System ¹⁴ are in place to attract investment, ensuring these translate into substantial, operational industrial units that generate significant local employment remains a key challenge.¹ Bridging the gap between investment proposals and ground-level impact requires sustained effort in improving the overall business ecosystem.
• Security and Stability: Although the government reports a return towards normalcy and peace ¹, the underlying security situation in the region remains a critical factor. Maintaining stability is explicitly acknowledged as essential for sustained economic progress.¹⁹ Any resurgence of instability could deter investment and disrupt development activities. The strategic dimension of many infrastructure projects also underscores the ongoing security considerations.⁶
• Environmental Sustainability: The scale of infrastructure development, involving tunnels, dams, highways, and potential mining activities, inevitably impacts the fragile Himalayan ecosystem.⁵⁸ Reports of large-scale tree felling for projects like the Srinagar Ring Road ³² and concerns about the impact of dam construction ⁶ highlight this tension. Balancing developmental imperatives with environmental conservation requires robust planning, mitigation measures, and effective implementation of policies like the planned Eco-Tourism Policy.⁷⁰
• Employment and Skills Gap: Despite efforts, unemployment remains a concern.⁸¹ The heavy reliance on self-employment schemes ⁸¹ needs to be complemented by robust private sector job creation. Ensuring that skill development programs (like those under Mission YUVA and PMKVY) ¹ align with the needs of emerging industries and provide pathways to sustainable livelihoods is crucial for harnessing the potential of the youth demographic.

7.3 J&K’s Trajectory: Opportunities and the Path Forward

Jammu & Kashmir stands at a critical juncture, with a clearly defined, centrally-backed strategy aimed at comprehensive development. Significant opportunities exist:

• Improved connectivity can catalyze growth in tourism (including new forms like adventure and eco-tourism), facilitate better market access for high-value horticultural products, and potentially attract industries leveraging the region’s resources and human capital (e.g., IT, handicrafts, pharma).²
• The focus on governance reforms, particularly digitalization and transparency ⁴, can enhance administrative efficiency, improve citizen satisfaction, and create a more predictable environment for businesses.
• Investments in human capital through education and health initiatives ¹ can create a more skilled and healthy workforce, contributing to long-term productivity and well-being.

The success of this entire development strategy represents a high-stakes endeavor to fundamentally reshape J&K’s socio-economic and political landscape, integrating it more deeply with India while addressing long-standing developmental deficits.¹ Its realization is contingent on several factors: the effective and timely execution of the numerous, complex infrastructure projects; sustained financial support from the central government coupled with successful internal fiscal reforms; the ability to translate policy frameworks into tangible investment and job creation on the ground; the maintenance of a stable security environment; and ensuring that the benefits of development are inclusive and reach the wider population across all regions of the Union Territory. The path forward requires navigating the identified challenges with diligence and adaptability.

8. Conclusion

The government’s strategy for Jammu & Kashmir presents a comprehensive and ambitious roadmap aimed at fostering unprecedented development across multiple fronts. Anchored by massive investments in infrastructure – particularly in enhancing all-weather transportation connectivity via roads, tunnels, and railways, and overhauling the power sector – the plan seeks to create the enabling conditions for robust economic growth. This growth is envisioned to be driven by a diversification strategy that strengthens traditional sectors like tourism and horticulture while actively promoting new industries, agriculture modernization through HADP, and attracting significant private and foreign investment facilitated by policy reforms and streamlined governance through initiatives like the Single Window System.

Parallel efforts focus on social development, with substantial upgrades planned for education and healthcare infrastructure, implementation of universal access schemes like PM-JAY SEHAT, and a strong push for skill development and employment generation, notably through self-employment initiatives and Mission YUVA. Governance reforms emphasizing transparency, accountability, and digitalization are central to improving service delivery and building confidence.

This transformative agenda is explicitly linked to national goals, particularly ‘Viksit Bharat @ 2047’, and relies heavily on sustained financial and administrative support from the central government. While progress is evident in several areas, including infrastructure completion, rising tourist numbers, and advancements in e-governance, the strategy faces considerable implementation challenges. These include navigating land acquisition hurdles, managing project timelines and costs in difficult terrain, ensuring fiscal sustainability amidst existing debt, translating investment intent into ground reality, maintaining stability, mitigating environmental impacts, and effectively addressing unemployment.

The future trajectory of Jammu & Kashmir hinges on the successful execution of this multi-faceted strategy. Overcoming the inherent challenges will be critical to realizing the vision of a peaceful, progressive, and prosperous region fully integrated into India’s growth story. The commitment to this path is clear, but its ultimate success will depend on effective implementation, adaptability, and ensuring that the development process is inclusive and benefits all citizens of the Union Territory.

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