GRAP Stage I activated in Delhi-NCR amid rising AQI: Key actions for aspirants

22 Oct GRAP Stage I activated in Delhi-NCR amid rising AQI: Key actions for aspirants

✎ GRAP is a statutory, tiered action plan under the Air (Prevention and Control of Pollution) Act, 1981, enforced by the CAQM to mitigate air pollution in Delhi-NCR through sector-specific measures aligned with AQI thresholds.

Subject Relevance — Where This Topic Fits

• GS Paper III — Environment and Pollution Control  |  GS Paper II — Governance, Transparency and Accountability
• Prelims: Air Quality Index (AQI), Graded Response Action Plan (GRAP), Commission for Air Quality Management (CAQM), National Green Tribunal (NGT), Construction and Demolition (C&D) Waste Management Rules, Pollution Under Control (PUC) Certificates, Eastern and Western Peripheral Expressways
• Essay: Environmental governance and sustainable urban development, Balancing economic growth with environmental protection in India

Quick Revision: GRAP is a statutory, tiered action plan under the Air (Prevention and Control of Pollution) Act, 1981, enforced by the CAQM to mitigate air pollution in Delhi-NCR through sector-specific measures aligned with AQI thresholds.

Why is this in the news?

The Commission for Air Quality Management (CAQM) in the National Capital Region and Adjoining Areas (NCR) has invoked Stage I of the Graded Response Action Plan (GRAP) with immediate effect in response to a sharp deterioration in the Air Quality Index (AQI) in Delhi-NCR. The AQI crossed the ‘Poor’ category threshold (201–300) on 21 October 2026, prompting the CAQM sub-committee to assess the situation and enforce preventive measures to avert further deterioration. This action underscores the institutional mechanisms in place to manage episodic air pollution events in India’s most polluted urban agglomeration.

Background

• The National Capital Region (NCR) faces severe air pollution challenges, particularly during the post-monsoon period (October–November), due to a combination of vehicular emissions, construction activities, biomass burning, and meteorological factors such as temperature inversions and low wind speeds.
• The Graded Response Action Plan (GRAP) is a statutory framework notified under the Air (Prevention and Control of Pollution) Act, 1981, and the Environment (Protection) Act, 1986, to combat air pollution in Delhi-NCR through a tiered response system based on AQI thresholds.
• The Commission for Air Quality Management (CAQM) was established in 2021 as a statutory body with the mandate to coordinate air quality management efforts across NCR states and Union Territories, replacing the erstwhile Environment Pollution (Prevention and Control) Authority (EPCA).
• The National Green Tribunal (NGT) has played a pivotal role in enforcing compliance with pollution control norms, including penalties for open burning of waste and non-compliance with solid waste management rules.
• The Eastern and Western Peripheral Expressways were constructed to divert non-destined heavy traffic away from Delhi, in compliance with Supreme Court directives, to reduce vehicular emissions within the city.

What is the Graded Response Action Plan (GRAP)?

• GRAP is a statutory, graded action plan notified by the Ministry of Environment, Forest and Climate Change (MoEFCC) in 2017 under the Environment (Protection) Act, 1986, to address air pollution in Delhi-NCR through a phased, response-based approach.
• The plan is structured into four stages (I to IV) corresponding to AQI ranges: Stage I (AQI 201–300, ‘Poor’), Stage II (AQI 301–400, ‘Very Poor’), Stage III (AQI 401–450, ‘Severe’), and Stage IV (AQI >450, ‘Severe+’).
• Each stage mandates specific preventive and mitigative measures across sectors such as construction, transport, industry, and waste management to curb emissions and improve air quality.
• Stage I measures include stricter enforcement of dust mitigation norms for construction and demolition (C&D) activities, enhanced monitoring of vehicular emissions, and intensified waste management practices to prevent open burning.
• The plan is implemented by the CAQM in coordination with state governments, municipal bodies, the Central Pollution Control Board (CPCB), and the Indian Institute of Tropical Meteorology (IITM) for meteorological assessments.
• GRAP operates in tandem with the National Clean Air Programme (NCAP), which sets city-specific targets for reducing particulate matter (PM10 and PM2.5) concentrations by 20–30% by 2024.
• The plan is dynamic and can be revised based on real-time air quality data, meteorological conditions, and technological advancements in pollution control.
• Non-compliance with GRAP measures can attract penalties under the Environment (Protection) Act, 1986, and the Air (Prevention and Control of Pollution) Act, 1981, including fines and legal action by the NGT.

Key Features

Feature	Significance
GRAP Stage I activation	Systematic, graded response to deteriorating air quality in Delhi-NCR, mandating immediate implementation of 25 pre-defined mitigation measures.
Real-time AQI monitoring	Continuous assessment of air quality via CPCB bulletins to trigger timely enforcement of GRAP stages.
Dust mitigation in C&D activities	Enforcement of anti-dust measures for construction and demolition sites to curb PM2.5 and PM10 emissions.
Strict ban on open waste burning	Prohibition of biomass and municipal solid waste burning to reduce secondary particulate formation.
Traffic management and vehicle regulation	Coordination of traffic flows and enforcement of Pollution Under Control Certificates (PUC) to limit vehicular emissions.

Why it Matters

Environmental Governance

• Demonstrates the operationalisation of the Graded Response Action Plan (GRAP), a statutory framework under the Air (Prevention and Control of Pollution) Act, 1981, to manage episodic air pollution in Delhi-NCR.
• Highlights the role of the Commission for Air Quality Management (CAQM) as a multi-stakeholder body coordinating pollution control measures across states.
• Emphasises the integration of scientific inputs (e.g., IITM weather forecasts) with policy enforcement to address air quality degradation.

Institutional Coordination

• Showcases the collaborative mechanism between CPCB, state pollution control boards, municipal authorities, and meteorological agencies for real-time pollution management.
• Illustrates the enforcement chain from central directives (CAQM) to local implementation (municipal bodies, traffic police, industrial regulators).

Public Health Imperative

• Addresses the acute health risks posed by ‘Poor’ AQI (201-300), including respiratory ailments, cardiovascular diseases, and reduced life expectancy in vulnerable populations.
• Aligns with the National Clean Air Programme (NCAP) objective of reducing particulate matter concentrations by 20-30% by 2024.

Challenges

1. Enforcement Gaps

• Persistent non-compliance with dust mitigation norms in construction activities despite regulatory frameworks like the C&D Waste Management Rules, 2016.
• Limited real-time monitoring capacity of municipal bodies to track illegal open waste burning and vehicular emissions.
• Delays in prosecution of violators due to cumbersome legal processes under the Air Act, 1981.

UPSC Link: Environmental Pollution and Degradation

2. Meteorological Constraints

• Adverse weather conditions (e.g., low wind speed, temperature inversions) exacerbate particulate accumulation, reducing the efficacy of mitigation measures.
• Dependence on seasonal agricultural residue burning (e.g., stubble burning in Punjab/Haryana) which falls outside local administrative control.

UPSC Link: Climate Change and Weather Systems

3. Urbanisation Pressures

• Rapid expansion of construction activities in Delhi-NCR without adequate pre-emptive pollution control measures.
• High vehicular density and inadequate public transport infrastructure leading to congestion-related emissions.

UPSC Link: Urbanisation and its Impact

4. Inter-State Coordination

• Divergent state-level priorities and resource constraints hinder uniform implementation of GRAP measures across NCR states.
• Lack of a unified emissions inventory for industrial and vehicular sources complicates targeted interventions.

UPSC Link: Federalism and Centre-State Relations

Challenges — UPSC Perspective

Issue	Concern
Illegal open waste burning	Contributes ~10-15% of PM2.5 in Delhi-NCR; difficult to monitor and prosecute due to dispersed sources.
Construction dust emissions	Unregulated C&D activities account for ~15-20% of PM10; enforcement of anti-dust measures remains sporadic.
Vehicular emissions	High share of older, unfit vehicles; inadequate PUC compliance and traffic congestion worsen air quality.
Stubble burning (seasonal)	Agricultural residue burning in neighbouring states adds ~20-30% to Delhi’s PM2.5 during peak months.
Industrial non-compliance	Unauthorised industries and inadequate stack emissions monitoring lead to persistent violations.

Way Forward

• Strengthen real-time air quality monitoring networks with IoT-enabled sensors for granular data dissemination.
• Enhance inter-state coordination through the CAQM by establishing a unified emissions database and joint task forces.
• Mandate pre-emptive dust mitigation measures for all construction projects >500 sqm, with mandatory remote sensing compliance.
• Expand public transport and non-motorised transport infrastructure to reduce vehicular emissions and congestion.
• Launch targeted awareness campaigns for citizens on reducing personal exposure (e.g., use of masks, indoor air purifiers).
• Accelerate the phase-out of older diesel vehicles and enforce PUC norms stringently with digital verification systems.
• Develop a seasonal action plan for agricultural residue management, integrating incentives for alternative practices.
• Increase penalties for open waste burning and illegal industrial emissions, with fast-track courts for environmental violations.

UPSC Value Addition

Prelims Practice Questions

Q1. Consider the following statements regarding the Graded Response Action Plan (GRAP) in the National Capital Region (NCR):

1. GRAP is implemented by the Commission for Air Quality Management (CAQM) under the Ministry of Environment, Forest and Climate Change.
2. GRAP Stage I is activated when the Air Quality Index (AQI) exceeds 200 (‘Poor’ category).
3. Under GRAP Stage I, construction and demolition (C&D) activities are permitted without any dust mitigation measures.
4. The National Green Tribunal (NGT) has the authority to impose penalties for violations of GRAP directives.

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 4 are correct. Statement 3 is incorrect as GRAP Stage I mandates strict enforcement of dust mitigation measures for C&D activities.

Q2. Assertion (A): The Commission for Air Quality Management (CAQM) is empowered to issue directions for the control of air pollution in the National Capital Region (NCR).

Reason (R): The CAQM was established under the Commission for Air Quality Management in National Capital Region and Adjoining Areas Act, 2021.

1. Both A and R are true, and R is the correct explanation of A
2. Both A and R are true, but R is not the correct explanation of A
3. A is true, but R is false
4. A is false, but R is true

Answer: Both A and R are true, but R is not the correct explanation of A — The CAQM was indeed established under the Commission for Air Quality Management in National Capital Region and Adjoining Areas Act, 2021, and it is empowered to issue directions for air pollution control in the NCR.

Q3. Match the following columns related to air pollution control measures in the National Capital Region (NCR):

Column I (Measure) | Column II (Regulatory Authority)
——————-|—————————
A. Construction and Demolition (C&D) waste management | 1. National Green Tribunal (NGT)
B. Vehicular emission control | 2. Central Pollution Control Board (CPCB)
C. Open burning of biomass | 3. Supreme Court directives
D. Industrial emission standards | 4. Municipal Corporations

1. A-4, B-3, C-1, D-2
2. A-2, B-3, C-1, D-4
3. A-1, B-2, C-3, D-4
4. A-4, B-2, C-1, D-3

Answer: A-2, B-3, C-1, D-4 — C&D waste management is regulated by Municipal Corporations (A-4). Vehicular emission control is governed by Supreme Court directives (B-3). Open burning of biomass is addressed by the National Green Tribunal (C-1). Industrial emission standards are enforced by the Central Pollution Control Board (D-2).

Mains Practice Question

✍ The Commission for Air Quality Management (CAQM) has invoked Graded Response Action Plan (GRAP) Stage I in the National Capital Region (NCR) due to a sharp rise in the Air Quality Index (AQI). Critically examine the constitutional and statutory framework governing air pollution control in India, with particular reference to the role of the CAQM, the National Green Tribunal (NGT), and the Supreme Court. Also, analyse the effectiveness of GRAP in mitigating air pollution in the NCR. (15 Marks)

Approach: MODEL-ANSWER SKELETON:

1. Constitutional and Statutory Framework:
– Article 21 (Right to Life and Personal Liberty) as interpreted by the Supreme Court in Subhash Kumar v. State of Bihar (1991) and subsequent cases.
– Air (Prevention and Control of Pollution) Act, 1981, and its amendments.
– Environment (Protection) Act, 1986, and the role of the Central Pollution Control Board (CPCB).
– The Commission for Air Quality Management in National Capital Region and Adjoining Areas Act, 2021: Composition, powers, and functions of the CAQM.
– Role of the National Green Tribunal (NGT) under the National Green Tribunal Act, 2010: Jurisdiction, powers, and landmark orders.
– Supreme Court’s role in directing measures to control air pollution (e.g., ban on stubble burning, vehicular restrictions).

2. Graded Response Action Plan (GRAP):
– Origin and legal basis: Supreme Court directives in 2016 and subsequent GRAP notifications.
– Stages of GRAP and their triggers based on AQI thresholds.
– Key measures under GRAP Stage I: Construction and Demolition (C&D) waste management, vehicular emission control, open burning restrictions, and industrial compliance.
– Role of municipal corporations, state pollution control boards, and other agencies in implementation.

3. Effectiveness of GRAP:
– Data on AQI improvements during GRAP implementation (if available in recent reports).
– Challenges: Enforcement gaps, inter-state coordination, public compliance, and seasonal variations.
– Criticisms: Over-reliance on emergency measures rather than long-term solutions (e.g., public transport, industrial zoning).
– Comparative analysis with other global models (e.g., Beijing’s air quality management).

4. Way Forward:
– Strengthening institutional mechanisms: Enhanced powers for CAQM, better inter-state coordination.
– Long-term strategies: Transition to cleaner fuels, expansion of public transport, and waste management reforms.
– Role of citizen participation and awareness campaigns.

Balance of Views:
– Proponents argue GRAP provides a structured response to pollution spikes.
– Critics highlight enforcement challenges and the need for systemic reforms.

Source: PIB (Press Information Bureau)

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