Clean Air Action in Delhi-Ncr: What Next?
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CAPITAL GAINS CLEAN AIR ACTION IN DELHI-NCR: WHAT NEXT? CAPITAL GAINS CLEAN AIR ACTION IN DELHI-NCR: WHAT NEXT? Authors: Anumita Roychowdhury, Atin Biswas, Avikal Somvanshi, Shambhavi Shukla, Shantanu Gupta, Shobhit Srivastava, Soundaram Ramanathan, Vivek Chattopadhyay, Sayan Roy and Anannya Das Editor: Akshat Jain Design: Ajit Bajaj Cover photo: Vikas Choudhary Layout: Kirpal Singh Production: Rakesh Shrivastava and Gundhar Das This report was made possible because of: The opinions expressed do not necessarily reflect the views of the supporters and funders, nor should they be attributed to them. The views/analysis expressed in this report/document do not necessarily reflect the views of Shakti Sustainable Energy Foundation. The Foundation also does not guarantee the accuracy of any data included in this publication nor does it accept any responsibility for the consequences of its use. © 2021 Centre for Science and Environment Material from this publication can be used, but with acknowledgement. Maps are not to scale. Citation: Anumita Roychowdhury et al 2021. Capital Gains: Clean Air Action in Delhi-NCR: What next?, Centre for Science and Environment, New Delhi Published by Centre for Science and Environment 41, Tughlakabad Institutional Area New Delhi 110 062 Phone: 91-11-40616000 Fax: 91-11-29955879 E-mail: [email protected] Website: www.cseindia.org 4 CONTENTS Clean air in Delhi-NCR: Action so far. What next? 7 SECTION 1: Air quality targets and assessment 27 SECTION 2: Industry 50 SECTION 3: Power plants 71 SECTION 4: Vehicles and fuels 83 SECTION 5: Mobility 105 SECTION 6: Waste 128 SECTION 7: Crop fires 141 SECTION 8: Clean household energy 149 Way forward 151 References 153 5 Clean air in Delhi- NCR: Action so far. What next? fter years of battling air pollution, the time has come to assess what has worked, what has not, and what more is needed to clean the air of Delhi and Athe National Capital Region (NCR). It took a pandemic induced lockdown to once again experience the joys of clean air and blue skies. But lockdowns are not the answer. For post-pandemic transformational changes it is necessary to draw lessons from what it takes to push durable long-term action. The experience of Delhi and NCR has been unique. Pressure applied by the combined forces of judiciary, executive, civil society, and media has kept this region ahead of others. Empowered public opinion has enabled early adoption of several important local measures as well as catalysed national emissions regulations. This presents a learning curve for other cities and regions—those implementing clean air action plans under the National Clean Air Programme (NCAP) and those with populations of over a million receiving funds for their urban local bodies under the recommendations of the 15th Finance Commission to control air pollution. Even though the battle against pollution is two decades old in this region, the last five years have proved to be an inflexion point. This period witnessed the generation of more robust scientific information on air pollution, the maturing of several actions initiated over the past decades, and opening up of new policy opportunities to enable the attention this public health crisis deserves. We have come a long way since the first phase of action began in the late nineties when air pollution was barely understood or talked about. Change was driven by firm support from the Supreme Court in the ongoing public interest litigation on air pollution in NCR and the need to develop strategies for urgent relief from the choking haze of pollution. Public campaigns stoked public conversation. The Environment Pollution (Prevention and Control) Authority (EPCA), that was appointed under the direction of the Supreme Court and set up under Section 5 of the Environment Protection Act 1986, brought scientific thinking and focus to the judicial process providing direction, countering resistance, and pushing implementation. Twenty years of clean air action in Delhi strategically targeted diesel, coal, other dirty fuels and inefficient combustion to reduce toxic emissions across sectors. The focus was to cut gross pollution from dirty diesel in transport, and coal in power plants and industry. That defined specific actions like shifting of big industries, moving diesel powered public transport and local commercial transport to compressed natural gas (CNG), improving emissions standards, restricting heavy-duty trucks, phasing out old vehicles, banning petcoke and furnace oil. and promoting cleaner fuels in industry, gradual closure of coal power plants, etc. 7 CAPITAL GAINS But the scope and scale of action was asymmetrical across the NCR. Sub-regions of the other three states in NCR—Haryana, Uttar Pradesh, and Rajasthan—were neither prepared to align with the actions in Delhi nor did they have stronger ambitions based on locally appropriate solutions. Nonetheless, this became the first ever experiment in the country to govern air quality at a regional scale with the co-operation of multiple state governments. This is creating the template for harmonized action with inter-state accountability. Getting this right is important for the rest of the country. The air quality gains from early action were mixed in Delhi. The pollution stabilized initially. But this could not be sustained as the change was overwhelmed by urban growth, motorization, and mushrooming of small industrial units and waste dumps. A bigger load of pollution was being added than the city could remove. Despite national policies becoming more progressive and comprehensive during the last decade, with emissions regulations becoming stronger for power plants, vehicles, and waste streams, on-ground change was slow. Local institutional mechanisms and systems were not adequately geared up to bridge the gap between policy and implementation. This made frequent judicial intervention necessary. Navigating the system to force action was a challenge. Nearly all decisions taken and measures proposed faced pushback and derailment. Either the industry resisted the changes or the government was not convinced. The battle in the courts became more protracted and time consuming. But judicial intervention did help to counter pushback so several multi-sector measures could get going. Those impatient with change need to understand this dimension to know why the change was not faster despite judicial support. Initially, the focus was on issue specific strategies to ensure follow through and implementation. This changed in 2015 when the Supreme Court directed framing of a more comprehensive multi-sector action plan in addition to the Graded Response Action Plan (GRAP) for emergency response during smog episodes. The focus shifted to more composite NCR-wide multi-sector action with time-bound responsibilities as well as emergency measures to respond to the smog episodes during winter. By this time, public conversation had become stronger and sharper in the city and the region. This was further aided by the emergence of new science of pollution source assessment. In 2015, the first source apportionment and inventory study came from the Indian Institute of Technology, Kanpur (IIT Kanpur). The scientific evidence on pollution sources and their relative role was clearer. While this helped to give a bigger push to the ongoing strategies it also helped to frame a more comprehensive approach. The urgency of change was also driven by mounting evidence on the health crisis. Studies from Chittaranjan National Cancer Research Institute showed every third child in Delhi had weak lungs. Studies from doctors of Vallabhbhai Patel Chest Institute showed children in polluted areas growing up with smaller lungs than those growing up in cleaner environments. State level global burden of disease indicated that health risk from air pollution was among the top three risk factors in the region. This provoked anger and a strong judicial response. Supreme Court directives during 2016 and 2017 led to the notifications of two seminal plans in the region—Comprehensive Action Plan (CAP) to combat air pollution in Delhi-NCR was issued under Section 3 and Section 5 of the Environment Protection (EP) Act 1986 in 2018 and the Graded Response Action Plan was notified in January 2017 for emergency response. This paved the way for multi-sector strategy across the NCR to move action on vehicles, transport, industries, power plants, and waste. This also led to the implementation of first ever emergency measures that 8 CLEAN AIR ACTION IN DELHI-NCR: WHAT NEXT? included temporary closure of industry, brick kilns and stone crushers, stopping of trucks and construction, and odd and even scheme to reduce vehicle numbers during smog episodes. Within this comprehensive planning approach, specific strategies had to be pursued for real world change. Solutions in each sector were getting more complex in design and scope and support from target groups was becoming more difficult to enlist. Implementing agencies were having a harder time enforcing and institutionalizing change. This called for knowledge building, systemic approach, and improvement in methods of delivery. Nearly each action needed a protracted courtroom battle. It is this story that other cities and regions need to understand. What it takes to move action and make a difference and what more is needed to get scale, speed, and ambition for change. This is the story of change since 2015, the turning point for second-generation action. This insight is also important for the next generation of action in Delhi and NCR. In October 2020 a Commission for air quality management in the NCR and adjoining areas was formed for air quality management in the region. This seeks to enhance the role and responsibility of the executive in the matter of air pollution control. The Commission is an executive body that consists of key ministries and state governments with central political oversight. The real challenge at this juncture is to build ambition and scale of action to push even more difficult and inconvenient solutions to cut particulate pollution by at least 60 per cent.