Is GRAP Enough to Curb Pollution?

Source: The Hindu

Introduction 

As Delhi's air quality fell to the 'Poor' category, the Commission for Air Quality Management in NCR and adjoining areas (CAQM) announced Stage I of the Graded Response Action Plan (GRAP) in Delhi-NCR. Every winter, pollution spikes in the region because of lower wind speeds and falling temperatures. Stubble burning and festive-season firecrackers add to emissions from vehicles and dust. 

What is GRAP? 

• GRAP is a set of short-term emergency measures to reduce air pollution, divided into four stages. 
• The CAQM announces each stage based on recorded or forecast pollution levels and directs State governments to implement the restrictions with "immediate effect" in Delhi and the NCR districts of Haryana, Uttar Pradesh and Rajasthan. 
• State governments are bound by law to implement the CAQM's directions, and the Commission can take legal action against officers who do not comply. 

How has GRAP Evolved? 

• The Ministry of Environment, Forest and Climate Change first notified GRAP in January 2017, following Supreme Court directions. 
• It was initially implemented by the Supreme Court-constituted EPCA, which had no statutory backing and so could not act against authorities that defied its orders. 
• In 2021, the CAQM replaced the EPCA. GRAP has since been revised several times and has become more stringent with each revision. 

What are the Stages of GRAP? 

GRAP can be imposed at any time of the year, but its higher stages are mostly invoked in winter. 

What Restrictions are Imposed? 

• Stage I: Mostly strict enforcement of existing pollution norms, such as not using diesel generator sets as a regular source of power. 
• Stage III:  
  • Construction and demolition activities are banned in Delhi-NCR. 
  • BS-III petrol and BS-IV (or lower) diesel LMVs are banned in Delhi and in the high vehicle density districts of Gurugram, Faridabad, Sonipat, Ghaziabad and Gautam Buddh Nagar. 
• Stage IV:  
  • The construction ban becomes stricter, with fewer exemptions. 
  • Trucks are banned from entering Delhi, except BS-VI, electric, CNG and LNG trucks. 

Has GRAP Improved Delhi's Air Quality? 

• GRAP is a short-term emergency tool, not a long-term strategy. 
• A 22nd October 2026 analysis by the Centre for Research on Energy and Clean Air (CREA), a Finland-based non-profit, found "no consistent" improvement over the past four winters. 
• Delhi's mean winter AQI rose from 280 in 2022-23 to 304 in 2023-24, fell to 285 in 2024-25, and rose again to 295 in 2025-26. 
• The median AQI followed the same pattern: 294, 324, 289 and 305. 

What is Different this Winter? 

• Through a gazette notification dated 23rd June, the Delhi government has imposed winter restrictions that apply regardless of air quality:  
  • Vehicle ban (1st November to 31st January): Non-Delhi-registered vehicles below BS-VI standards are banned. Electric, CNG, emergency and sovereign duty vehicles are exempt. 
  • Parking charges (1st November to 28th February): Charges at authorised parking sites are doubled. DMRC parking is exempt. 
• If GRAP orders conflict with this notification, GRAP prevails. 

Conclusion 

GRAP gives the CAQM a statutory, graded framework for emergency action, which the EPCA lacked. However, CREA's findings show that short-term measures alone have not consistently improved Delhi's winter air. The Delhi government's additional curbs mean this winter will see one of the highest levels of government action in recent years, at least on paper. Lasting improvement will depend on long-term action against the sources of pollution.