Under-utilised funds for NCAP, an hurdle in curbing air pollution

The goal of the Indian government's 2019 National Clean Air Programme (NCAP) was to reduce atmospheric PM concentrations by 20–30% by 2024 compared to 2017 levels. Later, this was changed to 40%, by 2026.

The National Clean Air Programme (NCAP), initiated in January 2019 by the Ministry of Environment, Forests, and Climate Change (MoEFCC), aims at improving the quality of the air in 131 cities (both million-plus and non-attainment cities) throughout 24 states and territories. By 2025–2026, the initiative hopes to achieve reductions of up to 40% or the attainment of the National Ambient Air Quality Standards for PM 10 (particulate matter) concentrations. 

The goal of the Indian government's 2019 National Clean Air Programme (NCAP) was to reduce atmospheric PM concentrations by 20–30% by 2024 compared to 2017 levels. Later, this was changed to 40%, by 2026.

Nonetheless, in a number of states, the funds are still largely underutilised. As of March 31, 2024, all cities under the NCAP had utilised 66% of the money, compared to 49% on the same date in 2023. In an answer in Lok Sabha, Minister of Environment, Forest And Climate Change, Kirti Vardhan Singh revealed the data on utilisation of funds by metro cities. 

A total of Rs. 19,614.44 crores have been set aside for 131 cities under the National Clean Air Programme (NCAP) between FY 2019–20 and FY 2025–2026. Of these, 49 million plus cities/urban agglomerations are funded under the XVth Finance Commission air quality grant, and the remaining 82 cities are funded by MoEF&CC under the Control of Pollution Scheme. To date, 131 cities have received payments totalling Rs. 11,211.13 crores to carry out their City Action Plans. 

Underutilisation of budget

According to public documents held by the Ministry of Environment, 131 cities received releases of about Rs. 10,566.47 crore as of May 2024, spanning the 2019–20 and 2023–24 fiscal years. Just 51 per cent, or Rs 831.42 crore, of the 1,615.47 crore allotted for 82 cities has been utilised. In the meantime, 42 cities having a population of one million or more received Rs 8,951 crore, of which Rs 5,974.73 crore, or 67%, was spent.

The majority of funds under the National Clean Air Programme (NCAP), or 64 per cent, are being used for road dust mitigation projects aimed at lowering particulate matter 10 (PM10) pollution. This adds up to the lesser effectiveness of an already underutilised fund. The Centre for Science and Environment (CSE) has released a new report that suggests refocusing efforts on reducing the more deadly, finer PM2.5 pollution.

Challenges

According to the Ministry, 27% of cities spend less than 30% of their allotted budgets. 

The CSE report evaluated the national scheme's efforts to reduce air pollution by looking at how funds were used, how well cities performed at improving air quality, and where there were implementation gaps.

The report stated that because of the NCAP's strong emphasis on PM10 pollution, the majority of funding has gone into road paving and widening, pothole repairs, water sprinkling, and the purchase of mechanised sweepers.

The analysis revealed that 64% of the money allocated was used to mitigate road dust, with just 12.63% and 14.51% going toward combustion sources of pollution, such as burning biomass and cars, respectively. The amount allocated to controlling industrial pollution was a pitiful 0.61%.

A suo moto review of the national system is being conducted by the National Green Tribunal (NGT), which is also evaluating NCAP spending in 53 cities. 

Need to focus on PM2.5

Improvements in PM10 do not appear to be correlated with the implementation of policies. Cities with populations over ten lakh, such as Agra, Delhi, Ghaziabad, Meerut, and Jabalpur, did well in the SVS but poorly in the NCAP when it came to lowering PM10. Delhi received a perfect score of 0 under NCAP, however, it ranked ninth under SVS for putting policy measures into practice.

CSE director general Sunita Narain said:

“While NCAP’s objectives and aims have always been commendable, we are finding that attention and investments under it are largely focused on dust control, and not on emission-spewing combustion sources such as industries or vehicles. Much less has gone towards controlling emissions from combustion sources -- with industrial pollution getting 0.61 per cent, vehicular pollution 12.63 per cent, and biomass burning 14.51 per cent. A balanced approach to funding is critical for effective impact.” 

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