CAQM Reviews Stubble Burning & Emission Control Strategies for UPSC

30 Sep CAQM Reviews Stubble Burning & Emission Control Strategies for UPSC

✎ The Commission for Air Quality Management (CAQM) is the nodal statutory body for coordinating air quality management in the NCR and adjoining areas, implementing the National Clean Air Programme (NCAP) through multi-sectoral…

Subject Relevance — Where This Topic Fits

• GS Paper III — Environment, Pollution Control, and Sustainable Development  |  GS Paper II — Governance, Institutions and their Role in Policy Implementation
• Prelims: Commission for Air Quality Management (CAQM), Stubble burning, Vehicular and industrial emissions, National Clean Air Programme (NCAP), Environment Protection Act, 1986, Air Quality Index (AQI), Graded Response Action Plan (GRAP), Crop residue management, Industrial emission standards, Bharat Stage (BS) emission norms
• Essay: Environmental governance and sustainable development: Balancing economic growth with ecological integrity, Institutional mechanisms for public health protection in India: A case study of air quality management

Quick Revision: The Commission for Air Quality Management (CAQM) is the nodal statutory body for coordinating air quality management in the NCR and adjoining areas, implementing the National Clean Air Programme (NCAP) through multi-sectoral interventions including stubble burning prevention, vehicular emission control, and industrial regulation.

Why is this in the news?

The Commission for Air Quality Management (CAQM) has undertaken a review of preparedness measures for the prevention of stubble burning, vehicular emission control, and industrial emission regulation, particularly in the context of the upcoming winter season when air quality in northern India typically deteriorates. This review underscores the critical role of institutional frameworks in mitigating air pollution through coordinated multi-sectoral interventions.

Background

• Air pollution in India, particularly in the Indo-Gangetic Plain, is a seasonal phenomenon exacerbated during the post-monsoon and winter months due to a combination of meteorological factors and anthropogenic activities.
• Stubble burning in agricultural fields, primarily in Punjab, Haryana, and Uttar Pradesh, contributes significantly to particulate matter (PM2.5 and PM10) levels, compounded by vehicular emissions and industrial pollution.
• The National Clean Air Programme (NCAP), launched in 2019, aims to achieve a 20-30% reduction in PM2.5 and PM10 concentrations by 2024, with 2017 as the base year.
• The Commission for Air Quality Management (CAQM) was established in 2020 under the Commission for Air Quality Management in National Capital Region and Adjoining Areas Act, 2021, to replace the erstwhile Environment Pollution (Prevention and Control) Authority (EPCA).
• The Graded Response Action Plan (GRAP), a set of emergency measures, is implemented by CAQM in phases based on the severity of air pollution levels.
• India has progressively tightened vehicular emission norms, transitioning from Bharat Stage IV (BS-IV) to Bharat Stage VI (BS-VI) standards nationwide by April 2020.

Institutional and Policy Framework for Air Quality Management in India

• The Commission for Air Quality Management (CAQM) is a statutory body tasked with enforcing the National Clean Air Programme (NCAP) and coordinating air quality management across the National Capital Region (NCR) and adjoining areas.
• CAQM operates under the legal mandate of the Commission for Air Quality Management in National Capital Region and Adjoining Areas Act, 2021, which empowers it to issue directions, impose penalties, and coordinate with state governments for pollution control.
• Stubble burning prevention is a key component of NCAP, with measures including the promotion of Happy Seeders, subsidised machinery (e.g., Super Straw Management Systems), and incentives for in-situ crop residue management.
• Vehicular emission control is governed by the Bharat Stage Emission Standards, which regulate the permissible limits of pollutants such as nitrogen oxides (NOx), particulate matter (PM), and hydrocarbons (HC) in vehicle exhaust.
• Industrial emission control is regulated under the Environment (Protection) Act, 1986, and the Air (Prevention and Control of Pollution) Act, 1981, with standards prescribed for particulate matter, sulfur dioxide (SO2), and other pollutants.
• The Air Quality Index (AQI) is a tool for real-time monitoring and public awareness, categorising air quality into six levels (Good to Severe) based on pollutant concentrations.
• The Graded Response Action Plan (GRAP) is a dynamic, phased response mechanism that activates specific measures (e.g., bans on construction, industrial activity, or vehicular movement) based on AQI thresholds.
• State Pollution Control Boards (SPCBs) and Pollution Control Committees (PCCs) play a crucial role in implementing emission norms, conducting inspections, and enforcing compliance at the regional level.

Key Features

Feature	Significance
Commission for Air Quality Management (CAQM) review	Ensures inter-state coordination for air quality governance under the Commission for Air Quality Management in NCR and Adjoining Areas Act, 2021.
Stubble-burning prevention measures	Promotes mechanized farming (Happy Seeders, Super Straw Management Systems) and enforcement of Punjab Preservation of Subsoil Water Act, 2009.
Vehicular emission control	Mandates Bharat Stage VI norms compliance and promotes electric vehicle adoption under Faster Adoption and Manufacturing of Hybrid and Electric Vehicles (FAME-II) scheme.
Industrial emission monitoring	Strengthens real-time emission tracking via Continuous Emission Monitoring Systems (CEMS) under National Clean Air Programme (NCAP) guidelines.
Grievance redressal mechanism	Facilitates public reporting via SAFAR and NCAP portals for timely intervention in pollution hotspots.

Why it Matters

Environmental Governance

• Institutionalises multi-state collaboration for air quality management in the National Capital Region (NCR) and adjoining areas, addressing trans-boundary pollution.
• Aligns with the National Clean Air Programme (NCAP) target of 20-30% reduction in PM2.5 and PM10 concentrations by 2024.
• Integrates agricultural residue management with industrial and vehicular emission controls to achieve holistic air quality improvement.

Public Health

• Reduces respiratory and cardiovascular diseases linked to particulate matter (PM2.5, PM10) and ground-level ozone exposure, particularly in urban areas.
• Mitigates long-term health impacts of stubble burning, including increased incidence of asthma and lung cancer in agricultural belts.

Technological Integration

• Leverages real-time data analytics (SAFAR, CEMS) for evidence-based policy formulation and enforcement.
• Promotes adoption of cleaner technologies in agriculture (Happy Seeders) and transport (electric vehicles) to reduce emissions at source.

Legal and Institutional Framework

• Operationalises the Commission for Air Quality Management (CAQM) as a statutory body with jurisdiction over NCR and adjoining states.
• Strengthens compliance mechanisms under the Air (Prevention and Control of Pollution) Act, 1981, and the Environment Protection Act, 1986.

Challenges

1. Stubble-Burning Persistence

• Delayed procurement of machinery (Happy Seeders, Super Straw Management Systems) due to high costs and limited availability.
• Inadequate awareness among farmers regarding alternative stubble management practices and financial incentives.
• Weak enforcement of the Punjab Preservation of Subsoil Water Act, 2009, leading to delayed transplanting and delayed harvesting.

UPSC Link: GS-III: Environmental Pollution

2. Vehicular Emission Compliance

• High cost of Bharat Stage VI-compliant vehicles and infrastructure for fuel quality monitoring.
• Limited adoption of electric vehicles in public and private transport due to range anxiety and charging infrastructure gaps.
• Inadequate public transport systems in peri-urban and rural areas, leading to increased private vehicle usage.

UPSC Link: GS-III: Environmental Pollution

3. Industrial Emission Monitoring

• Inconsistent implementation of Continuous Emission Monitoring Systems (CEMS) across industries due to technical and financial constraints.
• Lack of standardized protocols for emission data reporting and verification.
• Inadequate penalties for non-compliance with emission norms under the Air (Prevention and Control of Pollution) Act, 1981.

UPSC Link: GS-III: Environmental Pollution

4. Inter-State Coordination

• Divergent state policies on stubble burning and industrial emissions, leading to regulatory arbitrage.
• Delays in data sharing and joint action plans among states under the CAQM framework.
• Political sensitivities in addressing agricultural practices and industrial growth trade-offs.

UPSC Link: GS-II: Federalism

5. Public Awareness and Behavioural Change

• Low public participation in reporting pollution violations due to lack of awareness and fear of retaliation.
• Cultural and economic dependence on stubble burning in agricultural communities.
• Limited understanding of long-term health impacts of air pollution among vulnerable populations.

UPSC Link: GS-II: Governance

Challenges — UPSC Perspective

Issue	Concern
Stubble-burning	High costs of machinery, delayed procurement, and weak enforcement of state laws.
Vehicular emissions	High vehicle costs, limited EV infrastructure, and inadequate public transport.
Industrial emissions	Inconsistent CEMS implementation, lack of standardized protocols, and weak penalties.
Inter-state coordination	Divergent state policies, delays in data sharing, and political sensitivities.
Public participation	Low awareness, fear of retaliation, and cultural dependence on stubble burning.
Technological adoption	Limited access to cleaner technologies due to financial and infrastructural constraints.

Government Initiatives — Must-Memorise for Prelims

• National Clean Air Programme (NCAP)
• Faster Adoption and Manufacturing of Hybrid and Electric Vehicles (FAME-II)
• Punjab Preservation of Subsoil Water Act, 2009
• Commission for Air Quality Management (CAQM) in NCR and Adjoining Areas Act, 2021

Way Forward

• Enhance procurement and subsidy mechanisms for Happy Seeders and Super Straw Management Systems to accelerate stubble management.
• Expand Bharat Stage VI compliance monitoring and incentivize electric vehicle adoption through tax rebates and infrastructure development.
• Strengthen Continuous Emission Monitoring Systems (CEMS) with standardized protocols and third-party audits for industrial compliance.
• Establish a unified data-sharing platform for real-time air quality monitoring and inter-state coordination under the CAQM framework.
• Launch targeted awareness campaigns in agricultural and industrial belts to promote behavioural change and public participation.
• Rationalize state-level policies on stubble burning and industrial emissions to align with NCAP and CAQM guidelines.
• Increase penalties for non-compliance with emission norms and streamline grievance redressal via SAFAR and NCAP portals.
• Promote research and development in low-cost, scalable technologies for stubble management and emission reduction.

UPSC Value Addition

Prelims Practice Questions

Q1. Consider the following statements regarding the Commission for Air Quality Management (CAQM) in National Capital Region and Adjoining Areas:
1. It is a statutory body established under the Commission for Air Quality Management in National Capital Region and Adjoining Areas Act, 2021.
2. The CAQM has the power to impose penalties for violation of air pollution norms.
3. The CAQM is empowered to issue directions to the state governments of Delhi, Punjab, Haryana, Rajasthan, and Uttar Pradesh.
4. The CAQM can suo motu take cognizance of any air pollution issue without any complaint or reference.

How many of the above statements are correct?

1. Only one
2. Only two
3. Only three
4. All four

Answer: All four — Statements 1, 2, and 3 are correct. Statement 4 is incorrect as the CAQM cannot take suo motu cognizance; it requires a complaint or reference under Section 16 of the Act.

Q2. Which of the following is NOT a primary objective of the National Clean Air Programme (NCAP)?

1. A. Reduction of PM2.5 and PM10 concentrations by 20-30% by 2024
2. B. Identification of non-attainment cities
3. C. Mandatory adoption of electric vehicles in all states by 2025
4. D. Source apportionment studies for major pollutants

Answer: C. Mandatory adoption of electric vehicles in all states by 2025 — The National Clean Air Programme (NCAP) does not mandate the adoption of electric vehicles by all states by 2025. It focuses on reducing particulate matter concentrations, identifying non-attainment cities, and conducting source apportionment studies.

Q3. Assertion (A): The Central Pollution Control Board (CPCB) is a statutory organisation under the Ministry of Environment, Forest and Climate Change.
Reason (R): The CPCB derives its powers and functions from the Air (Prevention and Control of Pollution) Act, 1981.

Options:
A. Both A and R are true, and R is the correct explanation of A.
B. Both A and R are true, but R is not the correct explanation of A.
C. A is true, but R is false.
D. A is false, but R is true.

Answer: ? — The Central Pollution Control Board (CPCB) is indeed a statutory organisation under the Ministry of Environment, Forest and Climate Change, and its powers are derived from the Air (Prevention and Control of Pollution) Act, 1981. Hence, both the assertion and reason are true, and the reason correctly explains the assertion.

Mains Practice Question

✍ The Commission for Air Quality Management (CAQM) has been mandated to address the complex challenge of air pollution in the National Capital Region and adjoining areas through a multi-sectoral approach. Critically examine the institutional framework, regulatory powers, and implementation challenges of the CAQM in achieving its objectives. Also, analyse how the CAQM’s functions intersect with the National Clean Air Programme (NCAP) and the Air (Prevention and Control of Pollution) Act, 1981. (15 Marks)

Approach: MODEL-ANSWER SKELETON:

1. **Institutional Framework of CAQM**:
– Statutory body established under the Commission for Air Quality Management in National Capital Region and Adjoining Areas Act, 2021.
– Composition: Chairperson, members from central and state governments, technical experts, and representatives from civil society.
– Jurisdiction: Covers Delhi-NCR and adjoining areas of Punjab, Haryana, Rajasthan, and Uttar Pradesh.

2. **Regulatory Powers of CAQM**:
– Power to issue directions to state governments and local authorities for compliance with air quality standards.
– Authority to impose penalties for violation of norms under Section 18 of the Act.
– Ability to coordinate with state pollution control boards and formulate action plans for reducing air pollution.
– Role in monitoring and enforcing the Graded Response Action Plan (GRAP) during severe air pollution episodes.

3. **Implementation Challenges**:
– Coordination issues among multiple state governments and local authorities.
– Enforcement gaps due to lack of adequate manpower and resources.
– Resistance from state governments in implementing stringent measures.
– Limited success in addressing agricultural stubble burning despite technological interventions like Happy Seeders and PUSA Decomposer.
– Overlapping mandates with existing institutions like the Central Pollution Control Board (CPCB) and state pollution control boards.

4. **Intersection with NCAP and Air Act, 1981**:
– NCAP: Provides a national framework for reducing particulate matter concentrations, with city-specific action plans. CAQM aligns its strategies with NCAP targets.
– Air Act, 1981: Empowers state pollution control boards to enforce emission standards. CAQM supplements this by providing a regional coordination mechanism.
– Synergy: CAQM leverages the data and action plans developed under NCAP and the enforcement mechanisms of the Air Act to achieve its objectives.

5. **Critical Evaluation**:
– Strengths: Centralised coordination, statutory backing, and multi-sectoral approach.
– Weaknesses: Limited enforcement powers, dependence on state governments, and lack of adequate funding.
– Way Forward: Strengthening inter-state coordination, enhancing enforcement mechanisms, and integrating technological solutions for stubble management.

Source: PIB (Press Information Bureau)

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