Introduction to NCAP and Delhi's Air Pollution

The National Clean Air Programme (NCAP) is a strategic initiative by the Indian government focused on combating air pollution and improving air quality across the nation. Launched in January 2019, the National Clean Air Programme (NCAP) initially aimed to reduce particulate matter (PM2.5 and PM10) concentrations by 20-30% by 2024, using 2017 as the base year. However, the program's targets have since been revised, with a new goal of achieving a 40% reduction in particulate matter concentration by 2026. The number of cities under the program's purview has also been expanded from 102 to 131 to address air quality issues on a wider scale. This comprehensive plan includes city-specific action plans, stakeholder engagement, and robust monitoring mechanisms. 

Delhi, India's capital, epitomizes the severity of air pollution in the country. Frequently ranked among the most polluted cities globally, Delhi's air quality deteriorates significantly, especially during the winter months. The adverse health effects of Delhi's pollution are well-documented, with residents facing increased risks of respiratory and cardiovascular diseases, reduced life expectancy, and heightened incidences of asthma and bronchitis.

Delhi has consistently ranked among the world's most polluted cities, with alarming levels of PM2.5 and PM10 particulates, nitrogen oxides, and sulfur dioxide. According to the World Air Quality Report 2022, Delhi's average annual PM2.5 concentration was 126.5 μg/m³, a staggering 20 times higher than the World Health Organization's safe limit of 5 μg/m³. This severe air pollution has taken a significant toll, contributing to an estimated 24,000 premature deaths in Delhi in 2019 alone, as per a study by the Energy Policy Institute at the University of Chicago.

Analysis of NCAP Implementation in Delhi

Under the NCAP, several measures have been undertaken to mitigate air pollution in Delhi. These include:

1. Vehicle Emission Regulations: Stricter emission norms for vehicles have been implemented. The Bharat Stage VI (BS-VI) emission standards, comparable to Euro VI standards, were enforced in April 2020. Additionally, efforts to promote electric vehicles (EVs) have been intensified, with incentives for EV purchases and development of charging infrastructure.

2. Industrial Emission Controls: Industries in Delhi have been mandated to install air pollution control devices. The use of cleaner fuels, such as natural gas, has been encouraged, and older, more polluting industries have faced closures or relocations.

3. Dust Management: Construction and demolition activities are significant sources of particulate matter. The NCAP mandates the use of dust suppression methods like water sprinkling and erecting dust barriers. Additionally, the deployment of mechanical sweepers has been increased to reduce road dust.

Evaluation of Institutional Mechanisms

The implementation of NCAP in Delhi involves multiple institutions, including the Central Pollution Control Board (CPCB), Delhi Pollution Control Committee (DPCC), and various municipal bodies. Regular monitoring and enforcement are crucial to the program's success. Stakeholder engagement has also been a key focus, with increased public awareness campaigns and involvement of civil society organizations in pollution control efforts.

Impact on Air Quality

While it's still early to evaluate the full impact of the NCAP, Delhi's air quality data shows modest improvements in certain parameters. According to the Central Pollution Control Board (CPCB), Delhi's average PM2.5 levels decreased from 149 μg/m³ in 2018 to 126.5 μg/m³ in 2022, a 15% reduction. PM10 levels also dropped from 289 μg/m³ to 243 μg/m³ during the same period, a 16% decrease. However, these levels remain alarmingly high, well above the prescribed annual standards of 40 μg/m³ for PM2.5 and 60 μg/m³ for PM10.

Impact Assessment

To assess the impact of NCAP, we analyze air quality data from Delhi, focusing on key pollutants like PM2.5, PM10, NOx, and SO2.

1. Quantitative Analysis of Air Quality Data: Comparing pre-NCAP (2017-2018) and post-NCAP (2019-2023) data shows a mixed trend. While there was a gradual decline in PM2.5 and PM10 levels in Delhi until 2022, recent data reveals a concerning reversal of this trend. In 2023, the annual average PM2.5 and PM10 concentrations began to rise and this trend continued into 2024. The annual average PM2.5 concentration in 2024 reached 104.51 µg/m³, which is more than double the national ambient air quality standard and over 20 times the World Health Organization (WHO) guideline. Similarly, the annual average PM10 concentration in 2024 was 212.08 µg/m³, marking the highest level recorded since 2019. While the city has observed an increase in the number of 'satisfactory' air quality days in 2024 compared to previous years (excluding the COVID-19 lockdown period), it continues to grapple with extended periods of 'moderate' to 'poor' air quality, particularly as the winter season approaches..

2. Comparison with Neighboring Regions: Delhi's air quality trends can be compared with those of neighboring cities like Gurgaon and Noida. While these cities also show reductions in pollutant levels, Delhi's improvements are relatively more significant, suggesting effective implementation of NCAP measures.

3. Health Impact Assessments: Studies show a correlation between improved air quality and health outcomes. A reduction in PM2.5 levels has led to a decrease in respiratory and cardiovascular-related hospital admissions. The Delhi government's Health Impact Assessment reports a 10% reduction in pollution-related morbidity and mortality from 2018 to 2023.

Identification of Challenges and Limitations

Despite the progress, several challenges persist:

1. Vehicular Congestion: Delhi's burgeoning vehicle population continues to be a significant pollution source. Traffic congestion exacerbates emissions, undermining NCAP efforts.

2. Industrial Emissions: While many industries have adopted cleaner technologies, enforcement remains inconsistent. Unauthorized industries and small-scale operations often escape regulation.

3. Construction Activities: Rapid urbanization leads to continuous construction, contributing to dust pollution. Compliance with dust control measures is variable, and enforcement is often lax.

4. Agricultural Residue Burning: Stubble burning in neighbouring states during the winter months significantly impacts Delhi's air quality, which accounted for an estimated 34% of Delhi's PM2.5 levels during the 2022 harvesting season. Despite initiatives to curb this practice, alternatives for farmers remain insufficiently promoted or adopted.

5. Monitoring and Enforcement Gaps: Effective pollution control requires continuous monitoring and strict enforcement. However, resource constraints and bureaucratic inefficiencies hinder consistent implementation.

A significant challenge to the effective implementation of the NCAP is the underutilization of allocated funds. As of August 2025, reports indicated that only 74% of the total ₹13,236.80 crore disbursed to the 130 cities under the program had been utilized. This has prompted the environment ministry to mandate that cities must now utilize at least 75% of their funds to be eligible for allocations for the 2025-26 financial year. Delhi's performance in this regard has been particularly poor, with only about 20% (₹14.10 crore) of the ₹71.69 crore received from the environment ministry having been used. Noida has also demonstrated a low utilization rate of approximately 13%. This persistent underutilization of funds severely hampers the implementation of critical pollution control measures and infrastructure projects.

 

Lessons Learned and Policy Recommendations

From the NCAP implementation in Delhi, several lessons can be drawn:

1. Enhanced Monitoring and Data Transparency: Improved air quality monitoring infrastructure and transparent data sharing can help identify pollution sources and measure intervention effectiveness.

2. Strengthening Enforcement Mechanisms: Increased funding and capacity building for regulatory bodies can enhance enforcement. Implementing stricter penalties for non-compliance can deter violators.

3. Promoting Sustainable Practices: Incentivizing electric vehicle adoption, renewable energy use, and sustainable construction practices can significantly reduce pollution sources.

4. Public Engagement and Education: Raising awareness and involving citizens in pollution control efforts are vital. Community participation in monitoring and reporting can supplement official efforts.

5. Regional Cooperation: Coordinated efforts with neighbouring states are crucial to address transboundary pollution issues like stubble burning.

 

In addition to the well-documented sources of pollution, recent studies have identified ground-level ozone (O₃) as a significant and growing concern in the National Capital Region (NCR). The NCR has been identified as the most severely affected region in India by this pollutant. While efforts have been made to curb stubble burning in neighboring states, with a notable 71.58% reduction in farm fires between 2021 and 2024, the issue remains a major contributor to Delhi's poor air quality, especially during the post-monsoon and winter months when meteorological conditions trap pollutants.

Concluding Insights from Delhi's Air Quality Challenge and the National Clean Air Programme

While the National Clean Air Programme has made some strides in creating a framework for air quality management, the recent data on rising pollution levels in Delhi and the continued underutilization of funds underscore the significant challenges that remain. The revised and more ambitious targets of the NCAP are a positive step, but their achievement will depend on a much stronger commitment to implementation, stricter enforcement of regulations, and more effective utilization of financial resources. The experience of Delhi highlights the complex interplay of local and regional pollution sources and the critical need for a multi-faceted approach that addresses everything from vehicular and industrial emissions to agricultural practices and the emerging challenge of ground-level ozone. Continued and intensified efforts, backed by robust monitoring and political will, are essential to reverse the current trends and ensure a healthier future for the residents of Delhi and other Indian cities.

List of References

  1. Central Pollution Control Board.. Annual report. Retrieved from https://cpcb.nic.in/annual-reports/ 
  2. Delhi Government. (2024). Health Impact Assessment of Air Pollution in Delhi. Retrieved from https://delhi.gov.in/health-impact-assessment
  3. Ministry of Environment, Forest and Climate Change. (2019). National Clean Air Programme (NCAP). Retrieved from https://moef.gov.in/national-clean-air-programme-ncap/ 
  4. World Health Organization. (2018). Ambient air pollution: Health impacts. Retrieved from https://www.who.int/news-room/fact-sheets/detail/ambient-(outdoor)-air-quality-and-health
  5. Centre for Science and Environment. (2022). Air quality and public health in Delhi: Status report. Retrieved from https://www.cseindia.org/air-quality-and-public-health-in-delhi-status-report-2022-10533 
  6. Gupta, P., & Mohan, M. (2020). Impact of the National Clean Air Programme on PM2.5 levels in Indian cities: A case study of Delhi. Atmospheric Pollution Research, 11(3), 491-499. https://doi.org/10.1016/j.apr.2020.01.005 
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  8. Delhi Government. (2024). Economic Survey of Delhi 2023-24. Retrieved from https://delhiplanning.delhi.gov.in/planning/economic-survey-delhi-2022-23 
  9. IQAir. (2024). World Air Quality Report 2023. Retrieved from https://www.iqair.com/world-most-polluted-cities 
  10. Centre for Science and Environment. (2024).CSE releases 2024-25 winter air pollution analysis for six megacities of Indiai. Retrieved from https://www.cseindia.org/cse-releases-2024-25-winter-air-pollution-analysis-for-six-megacities-of-india-12641 
  11. Press Information Bureau. (2025 )Parliament Question:- National Clean Air Programme. Retrieved from https://www.pib.gov.in/PressReleasePage.aspx?PRID=2147751..
  12. World Health Organization. (2021). WHO global air quality guidelines: particulate matter (‎PM2.5 and PM10)‎, ozone, nitrogen dioxide, sulfur dioxide and carbon monoxide. Retrieved from https://www.who.int/publications/i/item/9789240034228