THE CONTEXT: In 2021, approximately 2.1 million deaths in India were attributed to air pollution, accounting for about 17.8% of the country’s total deaths. On average, 464 children under the age of 5 die daily in India due to air pollution-related causes. The health effects of air pollution resulted in financial losses of US$36.8 billion in India in 2019, equivalent to 1.36% of the country’s GDP. Air pollution is now the second leading risk factor for death in India, surpassing both tobacco use and diabetes.
NATIONAL CLEAN AIR PROGRAMME (NCAP):
A) Objectives and Targets:
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- The National Clean Air Programme (NCAP) was launched in January 2019 by the Ministry of Environment, Forest and Climate Change (MoEFCC) with the following key objectives:
- Reduce particulate matter (PM) concentration by 20-30% by 2024 compared to 2017.
- To improve the air quality monitoring network across the country.
- To enhance public awareness and capacity-building activities.
- In 2022, the targets were revised to:
- Achieve a 40% reduction in particulate matter concentration by 2025-26.
- The NCAP initially covered 131 non-attainment cities, which are cities that did not meet the National Ambient Air Quality Standards (NAAQS) from 2011 to 2015.
- The National Clean Air Programme (NCAP) was launched in January 2019 by the Ministry of Environment, Forest and Climate Change (MoEFCC) with the following key objectives:
B) Shortcomings:
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- Misplaced focus: A significant portion of funds (64%) has been spent on dust control measures rather than addressing primary pollution sources like industries and vehicles.
- Slow progress: By December 2023, only 931 out of the targeted 1,500 manual monitoring stations were operational.
- Underutilization of funds: As of November 2023, only 40% of the allocated funds for 82 non-attainment cities had been utilized.
- Limited source apportionment studies: By December 2023, only 44 out of 131 non-attainment cities had conducted source apportionment studies.
- Inadequate rural coverage: The rural monitoring network consists of only 26 manual stations, far short of the 100-station target for 2024.
- Lack of multi-pollutant approach: The program primarily focuses on PM10, neglecting other critical pollutants like PM2.5, nitrogen oxides, and ozone.
- Insufficient capacity building: Only about 6.24% of NCAP funds were spent on building capacity in relevant departments.
ECONOMIC AND SOCIAL COSTS:
A) Healthcare burden:
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- Economic impact: In 2019, the health effects of air pollution resulted in economic losses of US$36.8 billion in India, equivalent to 1.36% of the country’s GDP.
- Healthcare system strain: In 2019, air pollution-related costs to India’s healthcare system were estimated at nearly $12 billion.
- Increased hospitalizations: During severe pollution days, hospitals in Delhi reported a 30% rise in respiratory-related illnesses.
| Chronic disease burden, 2021 | % of Deaths linked to air pollution |
| Heart Disease Deaths | 40% |
| Lung Cancer Deaths | 33% |
| Type 2 Diabetes Deaths | 20% |
| Stroke Deaths | 41% |
| COPD Deaths | 70% |
B) Productivity losses:
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- Lost work and school days: Poor air quality leads to increased absenteeism, which affects both the work and education sectors.
- Cognitive impairment: Long-term exposure to air pollution can impair cognitive development in children, potentially affecting their future productivity and economic prospects.
- Premature deaths: In 2021, approximately 2.1 million deaths in India were attributed to air pollution, representing a substantial loss of productive life years.
- Economic aspirations: According to researchers from Boston College, economic losses due to pollution “could impede India’s aspiration to be a $5-trillion economy by 2024. “
C) Disproportionate impact on low-income communities:
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- Exposure inequality: Poorer households in India face a disproportionate impact from pollution caused by others despite contributing less to it.
- Vulnerability factors: the poorest are most exposed yet least equipped to mitigate these effects, drawing parallels to the unequal impacts of climate change.
- Pollution inequity index: It measures the mortality impact per unit of air pollution households contribute at different income levels, highlighting the disproportionate burden on lower-income groups.
- Geographical disparities: Southern Indian states have implemented more effective pollution reduction policies than northern states, where pollution and its consequences significantly impact mortality and economic costs.
- Indoor air pollution: While deaths from indoor air pollution (mainly from poorly ventilated cook stoves) have decreased by 64.2% since 1990, it remains a significant issue for low-income households.
- Children at risk: In urban areas like Delhi, children aged two to five from lower-income neighborhoods are particularly vulnerable to the effects of air pollution.
ENERGY TRANSITION CHALLENGES:
A) Dependence on fossil fuels
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- Coal dominance: In 2022, coal accounted for 45% of India’s total primary energy supply, up from 43% in 20204. This increase highlights the country’s ongoing dependence on coal for power generation.
- Oil and gas subsidies: In fiscal year 2023, oil and gas subsidies rose by 63% compared to the previous year, while coal subsidies increased by 17%. These subsidies perpetuate fossil fuel dependence and hinder the transition to cleaner energy sources.
- Captive power plants: These fossil fuel-intensive plants, used by industries for reliable power supply, account for 14% of India’s power supply but 16-18% of all power-related CO2 and air pollution emissions.
- Economic growth: India’s rapid economic growth, aiming to become a $5 trillion economy by 2027, drives increased energy demand across all sectors.
B) Need for clean energy infrastructure
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- Renewable energy targets: India aims to achieve 500 GW of renewable energy installed capacity by 20302. As of October 2024, the total installed capacity of renewable energy sources, including large hydropower, stands at 201.45 GW.
- Solar energy potential: India’s solar energy potential is estimated at 748 GWp, but the current installed capacity is only 92.19 GW. This gap indicates the need for substantial infrastructure development.
- Green hydrogen: India aims to produce 5 million tonnes of green hydrogen by 2030, supported by 125 GW of renewable energy capacity. This requires significant investment in production and distribution infrastructure.
- Electric vehicle infrastructure: While the government promotes electric vehicles, their benefits would be limited if their batteries were charged with coal-fired electricity. This highlights the need for clean energy infrastructure to support the transportation sector’s transition.
C) Rural energy needs
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- Traditional biomass dependence: As of 2019, around 660 million people, nearly half of India’s population, relied primarily on traditional biomass for cooking and heating. This leads to indoor air pollution and associated health risks.
- Clean cooking access: Despite progress in promoting clean cooking solutions, 95% of India’s population without clean cooking access is expected to remain in rural areas.
- Rural-urban disparity: PM2.5 levels in rural areas are like those in urban areas, indicating that air pollution is not just an urban issue. This underscores the need for clean energy solutions in rural areas.
- Pradhan Mantri Ujjwala Yojana: This government initiative, launched in 2016, aims to provide clean cooking fuel to disadvantaged households. While progress has been made, a significant portion of the rural population still depends on solid fuels.
- Household pollution contribution: PM2.5 emissions from household sources contribute 30 to 50 percent of overall ambient PM2.5 levels in India. This emphasizes the importance of addressing rural energy needs for improving overall air quality.
POLICY REFORMS AND PUBLIC ACCOUNTABILITY:
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- Airshed-based Management: The Indo-Gangetic Plain (IGP), one of the most polluted regions globally, demonstrates the need for an airshed approach. Delhi’s pollution, for instance, is heavily influenced by emissions from neighboring states like Punjab, Haryana, and Uttar Pradesh due to stubble burning and industrial activities. The Commission for Air Quality Management (CAQM) in NCR has adopted a regional approach by issuing directives across multiple states. However, other regions lack such frameworks.
- State Action Plans: States like Uttar Pradesh have shown progress, reducing urban PM2.5 levels by 37.8% and rural levels by 38.1% between 2017-2022. This highlights the potential of state-level interventions when aligned with regional goals. Smaller towns and rural areas require cluster mechanisms for shared infrastructure and solutions, as many lack resources to implement complex measures independently.
- Debate on Establishing a Regulatory Body: A unified body could enforce environmental standards more effectively and ensure coordination between central, state, and municipal agencies. The CAQM’s limited jurisdiction highlights the need for a comprehensive national-level regulatory framework that addresses transboundary pollution. Only 6.24% of NCAP funds have been spent on capacity building within SPCBs and urban local bodies, leading to poor enforcement.
THE COMPREHENSIVE SOLUTIONS:
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- Transportation Sector: Policies like the Faster Adoption and Manufacturing of Hybrid and Electric Vehicles (FAME) scheme have incentivized EV adoption. The Bharat Stage VI (BS-VI) emission standards, implemented in 2020, significantly reduced tailpipe emissions. India’s 2021 scrappage policy mandates fitness tests for older vehicles. Replacing outdated trucks could reduce NOx emissions by 17% and PM2.5 emissions by 11%.
- Energy Sector: Transitioning from coal to renewables in thermal power plants could reduce SO2 emissions by 95% and PM2.5 emissions by 80% by 2030. India plans to produce 5 million tonnes of green hydrogen annually by 2030, which could decarbonize sectors like steel and cement while reducing air pollution.
- Health Sector: Initiatives like deploying air purifiers in healthcare facilities can mitigate the impact of indoor air pollution. Programs educating citizens about the health impacts of pollution can drive behavioral changes, such as reducing waste burning or idling vehicles. Bengaluru’s Clarity air quality monitoring network empowers hospitals and schools with localized data, enabling targeted health interventions.
- Prioritizing Public Health in National Clean Air Strategy: Policies like the National Clean Air Programme (NCAP) should explicitly link health improvements with emission reductions. NCAP’s current focus on PM10 reduction needs expansion to include PM2.5 and other pollutants directly linked to respiratory and cardiovascular diseases. Mortality reduction targets tied to air quality improvements could incentivize more decisive action. The U.S. Clean Air Act integrates public health goals into environmental regulations, significantly reducing pollution-related mortality over decades.
THE CONCLUSION:
A holistic approach integrating systemic changes across energy, transportation, health, and agriculture is essential. Prioritizing public health within national strategies like NCAP will ensure that policies are people-centric rather than piecemeal. Community engagement at grassroots levels can amplify efforts by fostering behavioral changes and local accountability.
UPSC PAST YEAR QUESTION:
Q. Describe the key points of the revised Global Air-Quality Guidelines (AQGs) recently released by the World Health Organisation (WHO). How are these different from its last update in 2005? What changes in India’s National Clean Air Programme are required to achieve these revised standards? 2021
MAINS PRACTICE QUESTION:
Q. “Air pollution in India is not just an environmental issue but a public health emergency.” Critically analyze the role of the National Clean Air Programme (NCAP) in addressing this crisis.
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