Policy Update
Pritha Chowdhary
Background
India’s livestock sector is central to rural livelihoods, nutritional security and agricultural incomes. However, the country historically faced a paradox: it possessed a large indigenous bovine population, but the productivity of many animals remained low because of inadequate genetic improvement, limited access to quality breeding services and insufficient propagation of genetically superior indigenous animals.
Against this backdrop, the Government of India launched the Rashtriya Gokul Mission (RGM) in December 2014 to develop and conserve indigenous bovine breeds, genetically upgrade the bovine population and improve milk productivity. More than 80% of low-producing indigenous animals are reportedly owned by small and marginal farmers and landless labourers, making genetic improvement particularly relevant for rural livelihoods. The mission has an outlay of Rs 500 crore during the 12th Five Year Plan. During 2014-15 Rs 150.00 crores was allocated for development, preservation and conservation of indigenous breeds (Ministry of Agriculture & Farmers Welfare, 2014).
The Mission has also evolved over time. It was restructured in 2021, with an allocation of ₹2,400 crore for 2021–22 to 2025–26, and subsequently received an additional ₹1,000 crore in March 2025, taking the total allocation for the period to ₹3,400 crore (Rashtriya Gokul Mission, 2025). Thus, RGM represents a transition from a conventional livestock-development approach towards a technology-driven genetic improvement strategy.
Objectives
- To raise productivity of indigenous bovine breeds through identification and propagation of elite animals of indigenous breeds under National Milk Recording Programme.
- To create a National Milch Herd comprising high-genetic-merit animals, including donor animals, and promote the propagation of superior genetic animals through modern reproductive biotechnologies.
- Mainstreaming use of modern breeding technologies such as sex sorted semen, IVF technology, genomics etc. for enhancing productivity of bovines at farmer’s level.
- To enhance Artificial insemination coverage through delivery of Artificial insemination services at farmers’ doorstep.
Functioning
A central component of the mission was the establishment of Integrated Indigenous Cattle Centres, or “Gokul Grams,” in native breeding tracts and near metropolitan cities. Each Gokul Gram was envisaged with a capacity of around 1,000 animals, maintaining milch and unproductive animals in a 60:40 ratio. These centres were intended to serve simultaneously as breeding centres, sources of high-genetic-merit animals and training centres for farmers and breeders.
The Mission identifies superior indigenous animals through pedigree selection, genomic selection, progeny testing and milk recording. These animals are used to improve the genetic quality of the wider bovine population. The objective is to create a national pool of high-genetic-merit animals and increase the availability of superior germplasm.
Artificial insemination is one of the principal mechanisms through which superior genetics reach farmers. The Mission supports the expansion of the AI network and the establishment of Multi-Purpose Artificial Insemination Technicians in Rural India (MAITRIs) to provide breeding services at farmers’ doorsteps. This is important because the effectiveness of genetic improvement depends not only on the availability of superior semen but also on its accessibility to farmers.
RGM has increasingly incorporated advanced reproductive technologies. IVF enables rapid multiplication of desirable genetics, while sex-sorted semen increases the probability of producing female calves, which is particularly relevant for dairy farmers. Under the revised Mission, assistance of up to 50% of the cost of sex-sorted semen is provided to participating farmers. The Mission also supports conservation of indigenous breeds and assistance to institutions such as Gaushalas, Gosadans and Pinjarapoles. Hence, RGM attempts to balance productivity enhancement with the preservation of India’s indigenous genetic resources.
Performance
The performance of RGM can be assessed through its expansion of breeding services, technological adoption and broader improvements in bovine productivity.
Table 1: Targets and Achievements made under RGM
| Components under RGM | Targets | Achievements |
| Strengthening of existing semen stations(in nos.) | 44 | 48 |
| Progeny testing (Bulls in Nos.) | 3700 | 4620 |
| Production of bulls through embryos (in nos.) | 7900 | |
| Pedigree selection (Bulls in Nos.) | 1000 | |
| Genomic selection (in Nos.) | 50000 | 82058 |
| Import of bulls (Bulls in Nos.) | 1000 | 250 |
| Implementation of IVF Technology | 1,15,000 | 36,536-Embryo transferred & 3,761 calves born24,167- embryos produced |
| Establishment of ETT/IVF Labs (in nos.) | 10 | 24 |
| Breed Multiplication farms (in nos.) | 125 | 132 |
| Establishment of MAITRIs in nos. | 40,000 | 42096 |
| Training of MAITRIs in nos. | 40,000 | |
| AI programme (animals in million) | 165 | 152.9 |
| Promoting sex sorted semen (in million doses) | 12.20 | 13.5 |
| Skill Development | 74,333 | 74,630 |
Source: (Ministry of Fisheries, Animal Husbandry & Dairying, 2026)
These figures demonstrate substantial progress since the introduction of RGM. However, it is important to make a policy-evaluation distinction: these improvements cannot be attributed exclusively to RGM as these progress are due to other government programmes, animal nutrition, disease control, dairy infrastructure, private investment, changes in feed availability and broader improvements in dairy management.
Therefore, the figures should be interpreted as sectoral outcomes occurring alongside RGM, rather than as the Mission’s isolated causal impact.Nevertheless, these indicators provide useful evidence of the broader outcomes within the Mission’s area of intervention. By examining changes in productivity alongside the Mission’s objectives, interventions and implementation period, these figures can help assess the extent to which RGM has contributed to improvements in bovine productivity, while recognising that the observed changes also reflect the influence of other factors.
Impact
Under the Rashtriya Gokul Mission and other measures undertaken by the Department of Animal Husbandry and Dairying, the overall productivity of bovines in the country increased from 1,640 kilograms per animal per year in 2014-15 to 2,072 kilograms per animal per year in 2023-24, representing an increase of 26.34%. The productivity of indigenous and non-descript cattle increased from 927 kilograms per animal per year in 2014-15 to 1,292 kilograms per animal per year in 2023-24, an increase of 39.37%.
Similarly, the productivity of buffaloes increased from 1,880 kilograms per animal per year to 2,161 kilograms per animal per year, representing an increase of 14.94%. Milk production also increased from 146.31 million tonnes in 2014-15 to 239.30 million tonnes in 2023-24, registering a 63.55% increase over the decade. The Rashtriya Gokul Mission aims to increase bovine productivity to 3,000 kilograms of milk per animal per year by 2030. (Press Information Bureau, 2025).
Under the component quality artificial insemination services using semen of High Genetic Merit Bulls including bulls of Indigenous breeds are made available free of cost at farmers’ doorstep. As on date 9.16 crore animals have been covered, 14.12 crores Artificial Insemination have been performed and 5.54 crores farmers benefitted under the programme.
Progeny Testing and Pedigree Selection is being implemented to produce high genetic merit bulls, including bulls of indigenous breeds like Gir, Sahiwal, Tharparkar, Kankrej, Hariana, Rathi and Gaolao breeds of cattle and Murrah, Mehsana, Jaffarabadi, Pandharpuri, Nili Ravi breeds of buffalo. So far, 4343 high genetic merit bulls of indigenous breeds have been produced and made available to semen stations for semen production. In order to ensure availability of trained Artificial Insemination technicians community resource persons- Multipurpose Artificial Insemination Technicians in Rural India are being trained and equipped for delivery of quality Artificial Insemination services at farmers’ doorstep. Till now 38,736 have been trained and equipped (Press Information Bureau, 2025).
Emerging Issues
First, access to advanced technology remains uneven. IVF, genomic selection and sex-sorted semen require specialised infrastructure, skilled personnel and effective delivery systems. Their benefits may therefore remain concentrated in better-developed dairy regions unless last-mile capacity is strengthened. Government subsidies can encourage adoption, but long-term sustainability requires reductions in technology costs.
Second, genetic improvement must not compromise genetic diversity. Excessive concentration on a narrow set of high-yielding animals could reduce the genetic diversity that makes indigenous breeds valuable for climate adaptability and disease resilience. Conservation programmes therefore need to maintain breed-specific genetic resources. Genetics alone cannot solve India’s productivity problem. Feed and fodder availability, animal health, water, housing and farm management strongly influence whether an animal can express its genetic potential. RGM therefore requires stronger convergence with nutrition and animal-health interventions.
Third, farmer awareness and adoption remain important challenges. Small and marginal farmers may have limited awareness of advanced breeding technologies and their potential benefits. Concerns regarding the availability, reliability and effectiveness of these technologies can further discourage adoption. Therefore, greater extension services, farmer training, demonstrations and awareness programmes are required to improve understanding and encourage wider adoption.
Finally, there is an evaluation challenge. Rising milk production cannot automatically be interpreted as the causal impact of RGM. Future evaluations should measure farmer-level outcomes such as milk yield, conception rates, calf survival, genetic gain and changes in dairy income.
Way Forward
To strengthen the Rashtriya Gokul Mission (RGM), policy should adopt an integrated, farmer-centred and outcome-based approach. Artificial insemination (AI) and MAITRI networks should be expanded in underserved and remote regions, with regular training, certification and performance-based incentives for technicians. Greater emphasis should be placed on successful conception, calving, calf survival, genetic gain, milk yield and farmer income rather than the number of AI procedures alone. The Government should reduce the cost of IVF, sex-sorted semen and genomic testing through indigenous research, domestic technology development and targeted subsidies for small and marginal farmers.
RGM should be closely integrated with fodder development, balanced nutrition, veterinary healthcare, vaccination and disease-control programmes to ensure that animals can express their genetic potential. Conservation of indigenous breeds should remain a priority through breed-specific genetic databases, genomic repositories, semen banks and systematic performance recording. Region-specific breeding strategies should consider climate, disease prevalence, feed availability and local breed characteristics.
Farmer awareness should be strengthened through extension services, demonstrations, cooperatives and digital platforms to overcome adoption barriers. Investment in last-mile infrastructure, including semen storage, veterinary facilities and reliable breeding services, is also essential. Finally, breeding programmes should incorporate climate-resilient traits, such as heat tolerance, disease resistance and feed efficiency, while periodic independent evaluations should assess programme effectiveness, sustainability and its impact on farmers’ livelihoods.
References
- Press Information Bureau. (2014, July 28). Rashtriya Gokul Mission aims to conserve and develop indigenous breeds. https://www.pib.gov.in/newsite/PrintRelease.aspx?lang=2®=48&relid=107580
- Press Information Bureau. (2025, March 19). Cabinet approves implementation of revised Rashtriya Gokul Mission with enhanced allocation for the years 2024–25 and 2025–26. https://www.pib.gov.in/PressReleasePage.aspx?PRID=2112789®=48&lang=
- Press Information Bureau. (2025, April 1). Rashtriya Gokul Mission. https://www.pib.gov.in/PressReleasePage.aspx?PRID=2117330&utm_source=chatgpt.com®=48&lang=2
- Press Information Bureau. (2025, July 30). Rashtriya Gokul Mission. https://www.pib.gov.in/PressReleasePage.aspx?PRID=2150208&lang=2®=4
- Press Information Bureau. (2026, March 18). Achievements of Rashtriya Gokul Mission. https://www.pib.gov.in/PressReleasePage.aspx?PRID=2241601®=3&lang=1
- Department of Animal Husbandry and Dairying. (2026). Rashtriya Gokul Mission. https://dahd.gov.in/en/schemes/programmes/rashtriya_gokul_mission
About the Contributor
Pritha Choudhury is a postgraduate in Economics from Jadavpur University. Her academic interests include public policy, economic development, innovation policy, and data-driven policy analysis.
Reviewers: Sandra Menon, Dolly Kaushik
Acknowledgment
The author extends sincere thanks to the IMPRI team for their guidance and support in developing this Policy Update.
Disclaimer
The views and opinions expressed in this policy update are those of the author and do not necessarily reflect the official position of IMPRI or any affiliated institution. While every effort has been made to ensure the accuracy of the information and data presented, readers are encouraged to verify facts independently before relying on them for any decision-making purpose.
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